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2021-12-13 GC Agenda - Item 8 -Attachment 1 - Housing Needs Assessment
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General Committee Agenda
13 December 2021
Attachment 1 to Item 8
Noosa Housing Needs
Assessment
2021
A Technical Report on the Context of
Housing and Households
in Noosa Shire
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Full text of sections 2 to 98 (of 141)
Section 2
© Noosa Council 2021 www.noosa.qld.gov.au General Enquiries: By telephone: (07) 5329 6500 By email: [email protected] Street Address: 9 Pelican Street, TEWANTIN Postal address: PO Box 141, TEWANTIN QLD 4565 Endorsed by Noosa Council [date to be inserted] or insert document date
Section 3
Table of Contents
Executive Summary ...................................................................................................................... 7
1. Introduction .......................................................................................................................... 9
1.1 Prior Housing Needs Assessment ............................................................................ 9
1.2 Purpose of this Report.............................................................................................. 9
1.3 Monitoring of Noosa Plan 2020 .............................................................................. 10
2. Housing Market Context .................................................................................................... 11
2.1 Housing Continuum ................................................................................................ 18
2.2 Unmet Housing Needs ........................................................................................... 18
2.3 Dwelling Targets .................................................................................................... 19
2.4 Expansion versus Consolidation ............................................................................ 20
2.5 Role of Local Government in Housing .................................................................... 21
3. Population Review and Analysis ...................................................................................... 23
3.1 Statistical Geography ............................................................................................. 23
3.2 Estimated Residential Population and Growth ........................................................ 25
3.3 Age Characteristics ................................................................................................ 29
3.4 Ethnic Background ................................................................................................. 32
3.5 Income ................................................................................................................... 32
3.6 Socio-economic considerations .............................................................................. 33
3.7 Economic & Employment Characteristics ............................................................... 38
3.8 Impact of COVID19 on employment and income .................................................... 40
3.9 Implications for housing sector ............................................................................... 42
4. Housing and Household Characteristics ......................................................................... 44
4.1 Households ............................................................................................................ 44
4.2 Dwelling Type ........................................................................................................ 44
5. State Plan-making System ................................................................................................ 46
5.1 ShapingSEQ, SEQ Regional Plan .......................................................................... 46
5.2 State Planning Policy ............................................................................................. 48
6. State Housing System ....................................................................................................... 50
6.1 Queensland Housing Strategy................................................................................ 50
6.2 Inclusionary planning.............................................................................................. 51
6.3 Housing Construction ............................................................................................. 52
6.4 Proposed rental housing reform ............................................................................. 52
7. Noosa Plan 2020 ................................................................................................................ 54
7.1 Strategic Framework .............................................................................................. 54
7.2 Residential Zones .................................................................................................. 56
7.3 Housing in other zones........................................................................................... 57
Noosa Housing Needs Assessment 2021 Page 1
Section 4
7.4 Land Use and Administrative Definitions ................................................................ 58
7.4.1 Dwelling house................................................................................................................. 59
7.4.2 Dual occupancy ............................................................................................................... 60
7.4.3 Multiple dwellings............................................................................................................. 60
7.4.4 Community Residences ................................................................................................... 61
7.4.5 Rooming Accommodation ............................................................................................... 62
7.4.6 Caretaker’s Residence and Dwelling Unit ....................................................................... 63
7.4.7 Short-term accommodation ............................................................................................. 64
7.5 Carparking requirements ........................................................................................ 65
7.6 Development opportunities for multiple dwellings ................................................... 67
8. Existing Housing Supply and Dwelling Characteristics.................................................. 68
8.1 What is Housing Diversity? .................................................................................... 68
8.2 Dwelling structures and household size ................................................................. 68
8.3 Dwelling size and household size ........................................................................... 71
8.4 Housing Tenure...................................................................................................... 73
9. Recent dwelling approvals ................................................................................................ 77
10. Housing Cost and Availability........................................................................................... 79
10.1 Residential Property Sale Prices ............................................................................ 79
10.2 Mortgage Payments ............................................................................................... 81
10.3 Median Rents ......................................................................................................... 82
10.4 Private Rental Vacancy Rates ................................................................................ 86
10.5 Bond lodgements ................................................................................................... 90
10.6 Competitive rental market ...................................................................................... 91
11. Social Housing ................................................................................................................... 92
11.1 Broader Context ..................................................................................................... 92
11.1.1 National context ............................................................................................................... 92
11.1.2 State Context ................................................................................................................... 93
11.2 Social Housing in Noosa Shire ............................................................................... 93
11.2.1 Existing public housing stock........................................................................................... 93
11.2.2 Wait list for social housing ............................................................................................... 94
11.3 Community Housing, Transitional Housing, and Emergency Housing .................... 96
11.3.1 Coast2Bay Housing Group .............................................................................................. 96
11.3.2 YouTurn ........................................................................................................................... 97
11.3.3 Endeavour Foundation .................................................................................................... 98
11.3.4 The Salvation Army ......................................................................................................... 98
11.3.5 St Vincent de Paul ........................................................................................................... 98
11.4 Private Rental Assistance ...................................................................................... 99
12. Alternative Housing ......................................................................................................... 100
Noosa Housing Needs Assessment 2021 Page 2
Section 5
13. Housing Needs for Older Residents ............................................................................... 103
13.1 National Trends .................................................................................................... 103
13.2 Funding ................................................................................................................ 108
13.3 Aged Care Reform ............................................................................................... 108
13.4 Benchmarking aged care ..................................................................................... 110
13.5 Retirement Villages and Lifestyle Resorts ............................................................ 111
13.6 Land needs .......................................................................................................... 114
14. People with a disability ................................................................................................... 115
15. Traditional Owners .......................................................................................................... 117
16. Residents V’s Visitors ..................................................................................................... 118
16.1 Visitors in residential neighbourhoods .................................................................. 118
16.1.1 Owners of Short-term rentals ........................................................................................ 118
16.1.2 Permanent residents...................................................................................................... 119
16.1.3 Noosa Plan 2020 response to short-term accommodation ........................................... 119
16.2 Residents in Resorts ............................................................................................ 120
16.3 Hostels converting to Rooming Accommodation .................................................. 121
17. Council Involvement in facilitating Housing Delivery ................................................... 124
17.1 Recognising and monitoring the problem ............................................................. 125
17.2 Partnering with Service providers and advocating for change .............................. 125
17.2.1 Social Services Hub....................................................................................................... 126
17.2.2 Head leases ................................................................................................................... 126
17.2.3 Discounts on development fees and charges ............................................................... 126
17.2.4 Build-to-rent ................................................................................................................... 126
17.2.5 Underutilised Council or State owned land. .................................................................. 127
17.3 Delivery ................................................................................................................ 129
17.4 Funding Opportunities .......................................................................................... 130
18. Improvements to the Planning Scheme ......................................................................... 132
18.1 Definitions ............................................................................................................ 132
18.2 Short-term accommodation in medium and high density residential zones ........... 132
18.3 Further residential units in or surrounding centres and employment hubs ............ 132
18.3.1 Social Housing requirements for Major Centres ........................................................... 132
18.3.2 Tewantin business centre .............................................................................................. 133
18.3.3 Ben Lexcen Drive, Sunrise Beach ................................................................................. 133
18.3.4 Goodchap Street, Noosaville ......................................................................................... 134
18.4 Disability Housing ................................................................................................. 136
18.5 Relocatable Home Parks...................................................................................... 136
18.6 Auxiliary Units ...................................................................................................... 136
18.7 Carparking ........................................................................................................... 137
Noosa Housing Needs Assessment 2021 Page 3
Section 6
18.7.1 Multiple residential development ................................................................................... 137
18.7.2 Covered spaces ............................................................................................................. 139
18.8 Siting of rural houses............................................................................................ 139
Figures
Figure 1 Regional Context of Noosa Shire .....................................................................................................................................12
Figure 2 Settlement Map of Noosa Shire .......................................................................................................................................13
Figure 3 New loan commitments for owner occupier housing (seasonally adjusted), values, Queensland ........16
Figure 5 New loan commitments for investor housing (seasonally adjusted), values, Queensland .......................17
Figure 5 Housing Continuum ..............................................................................................................................................................18
Figure 6 Unmet Housing Needs .........................................................................................................................................................18
Figure 9 Resourcing the alternative roles in the affordable housing space ......................................................................22
Figure 10 Noosa Shire LGA and the SA2s .......................................................................................................................................24
Figure 11 Coastal SA2s compared to LGA boundary .................................................................................................................25
Figure 10 Net internal migration to Queensland since 2019 ..................................................................................................28
Figure 13 Unemployment rate comparison Noosa Shire and Queensland ......................................................................33
Figure 14 Map of Index of Relative Socio-economic Advantage and Disadvantage ratings .....................................38
Figure 13 National percentage change in payroll jobs by industry, between 14 March and 18 April 2020 ........41
Figure 16 Dwelling Supply benchmarks to 2041 .........................................................................................................................46
Figure 17 Planned dwelling supply compared to ShapingSEQ benchmarks ....................................................................47
Figure 18 Dwelling growth ...................................................................................................................................................................48
Figure 19 Elements of housing diversity with potential to support more affordable housing supply ...................68
Figure 20 Number of residential building approvals in Noosa Shire ..................................................................................78
Figure 21 Median rent for a 3 bedroom house, Noosa LGA compared to Queensland State ..................................83
Figure 22 Residential Vacancy rates for Sunshine Coast Region ..........................................................................................87
Figure 23 Residential Vacancy Rate 4568 Postcode ...................................................................................................................87
Figure 24 Residential Vacancy Rates 4563 postcode .................................................................................................................88
Figure 25 Residential Vacancy Rate 4565 postcode ...................................................................................................................88
Figure 26 Residential Vacancy Rate 4566 postcode ...................................................................................................................89
Figure 27 Residential Vacancy Rates 4567 postcode .................................................................................................................89
Figure 28 People using Home Support by Age (nationally), 2019-2020 ......................................................................... 104
Figure 29 People using Home Care by Age (nationally), 2019-2020 ................................................................................ 105
Figure 30 People using Permanent Residential Care by Age (nationally), 2019-2020............................................... 105
Figure 31 People living in permanent residential aged care, by age and sex, 30 June 2020 .................................. 106
Figure 32 People using permanent residential care by age and sex, 30 June 2010 - 2020 ..................................... 106
Figure 33 People using Home Care by age and sex, 30 June 2010-2020 ....................................................................... 107
Noosa Housing Needs Assessment 2021 Page 4
Section 7
Figure 33 International Arrivals of Non-Australian Citizens ................................................................................................. 121 Figure 35 Departures from Australia of Non-Australian Citizens ....................................................................................... 122 Figure 36 Example of Double rooms with private bathroom at Bounce Noosa .......................................................... 123 Figure 37 Ben Lexcen Drive properties of consideration ....................................................................................................... 133 Figure 38 Sites of Consideration in Goodchap Street, Noosaville ..................................................................................... 135 Figure 39 Spectrum of one and two household domestic housing (Logan Council) ................................................. 137 Tables Table 1 Estimated Resident Population and Growth ..................................................................................................................26 Table 2 Estimated Resident Population and Growth by SA2 ..................................................................................................26 Table 3 Projected Populations to 30 June 2016-2041 ...............................................................................................................27 Table 4 Median Age by SA2 2001-2041 ..........................................................................................................................................30 Table 5 Estimated Residential Population by Age 2016 and 2041 .......................................................................................31 Table 6 Median income comparisons Census 2016 ...................................................................................................................32 Table 7 Department of Social Services Payments Noosa Shire .............................................................................................34 Table 8 Age Pension Payments by SA2s .........................................................................................................................................34 Table 9 Disability Indicators by SA2s ................................................................................................................................................35 Table 10 Lower income family indicators .......................................................................................................................................36 Table 11 Unemployment and Jobseeker Recipients by SA2 ...................................................................................................37 Table 12 Occupation by total personal income, Noosa Shire and Queensland, 2016..................................................40 Table 13 Private rental affordability for low income tenants, 30 June 2019 .....................................................................43 Table 14 Dwelling Structure at 2016 by SA2 for occupied private dwellings ...................................................................45 Table 15 Northern sub-region current estimates and future supply benchmarks .........................................................47 Table 16 Northern sub-region consolidation and expansion dwelling supply benchmarks ......................................47 Table 17 Noosa Plan 2020 carparking requirements for residential uses..........................................................................66 Table 18 Private Dwellings by type 2016 Census ........................................................................................................................69 Table 19 Occupied private dwellings by dwelling structure Noosa LGA 2006-2016 ....................................................70 Table 20 Structure of occupied private dwellings by number of persons usually resident 2006 - 2016 ..............71 Table 21 Dwelling Structure and number of bedrooms by number of persons usually resident for family households 2006 - 2016 ................................................................................................................................................................72 Table 22 Dwelling Structure and number of bedrooms by number of persons usually resident for group households 2006 - 2016 ................................................................................................................................................................73 Table 23 Fully owned occupied private dwellings 2016 ...........................................................................................................74 Table 24 Occupied private dwellings being purchased 2016 .................................................................................................75 Table 25 Occupied private dwellings being rented 2016 .........................................................................................................76 Table 26 Snapshot of new residential buildings January 2017 - June 2021 .....................................................................77 Noosa Housing Needs Assessment 2021 Page 5
Section 8
Table 27 Residential dwelling sales 12 months ending 30 June 2021 ................................................................................80 Table 28 New house and vacant land sales, 12 months ending 30 June 2021 ................................................................81 Table 29 Median weekly rent by dwelling type, 12 months ending 30 September 2021 ...........................................82 Table 30 Median Weekly Rents for 1 bedroom Flats / Units ..................................................................................................83 Table 31 Median Weekly Rents for 2 bedroom Flats / Units ..................................................................................................84 Table 32 Median Weekly Rents for 3 bedroom Townhouses .................................................................................................84 Table 33 Median Weekly Rents for 3 bedroom Houses ...........................................................................................................85 Table 34 Median Weekly Rents for 4 bedroom Houses ...........................................................................................................85 Table 35 Bonds held by RTA at a point in time ............................................................................................................................90 Table 36 Social housing tenancies by number of bedrooms in the dwelling 30 June 2020 ......................................94 Table 37 Social Housing Register for Noosa Shire at 30 June 2021 ....................................................................................95 Table 38 Housing Register by segment of need 30 June 2020 ..............................................................................................96 Table 39 Private market assistance by category of assistance, year ending 30 June 2020 .........................................99 Table 40 Usual Dwelling type for Older People by Age and Sex 2016 .................... Error! Bookmark not defined. Table 41 Allocated Aged Care places Noosa Shire 2021 ....................................................................................................... 111 Table 42 Retirement Facilities Noosa Shire 2021...................................................................................................................... 112 Table 43 Council and State owned lands put forward as having potential for housing ........................................... 127 Noosa Housing Needs Assessment 2021 Page 6
Section 9
Executive Summary
“We are facing a housing emergency that is having an impact on the economy, on our businesses
and affecting the liveability of our communities” Mayor Clare Stewart 19 July 2021.
In 2021 Noosa Shire Council has regarded the Shire as being gripped by a housing crisis, which is
having a significant social and economic impact on the community.
Metropolitan and regional communities across Australia have been reporting a lack of affordable
housing, a shortage of permanent rental vacancies and struggles for first home buyers and sole
income households particularly, in securing appropriate housing. Regional communities are
experiencing difficulties in attracting and retaining key workers where permanent accommodation is
lacking and holiday and lifestyle destinations, like Noosa, are acutely affected.
Noosa Shire has a finite supply of developable land however by 2041, development needs to cater
for around 6,400 more dwellings than existed at the 2016 census. Future housing will largely be
provided through 'infill' development within existing residential areas, on well located, under-utilised
land, and within town centres in a mixed-use format.
In July 2020 Noosa Council adopted a new planning scheme (Noosa Plan 2020). This plan includes
a strategic intent for housing to meet diverse needs of the community. It recognizes that different
housing types and styles are needed to provide choices, ensuring people’s housing needs are
catered for, regardless of age and mobility, household size and budget. By providing housing choice
in each local area, a greater mix of people and ages are accommodated and this can provide a more
diverse community.
Around 80% of housing in the Shire is separate houses comprising three or more bedrooms.
Residential units and communal living such as retirement and aged care make up the remainder. It
is projected that by 2041 some 30% of the total housing stock should be multi-unit housing styles,
particularly small one and two bedroom dwellings to cater for smaller households.
In March 2021 Noosa Council resolved to update the Noosa Council 2017 Housing Needs
Assessment prepared by Briggs & Mortar Pty Ltd, with regard to the provisions of Noosa Plan 2020
and the current local housing situation and trends.
This review has confirmed:
• The demand for residential properties in Noosa Shire is very high;
• Persons not already owning property, will find it difficult to enter the market in Noosa Shire;
• The availability of homes for permanent rentals has diminished and weekly rents increased
significantly in the last few years;
• Incomes and wages for jobs located within Noosa Shire are not keeping up with the rising cost
of accommodation or commuting;
• Businesses and other workplaces are experiencing difficulty attracting and retaining
employees who cannot afford to live in the area, this has in instances resulted in businesses
down-scaling or even closing;
• COVID-19 and the Royal Commission have impacted the aged care and retirement sector and
operators have reduced capacity to invest in capital works, including construction of new
developments for which they already have approvals;
• The opportunities for additional social housing are limited and further action or intervention by
Council is likely to be necessary before it is delivered.
Noosa Housing Needs Assessment 2021 Page 7
Section 10
Noosa Council has indicated a strong desire to take action to relieve the pressure on the local
housing market and facilitate greater housing choice for the community moving forward, before there
is further social and economic impact on the Shire. As a result it is the recommendation of this study
that Council adopt a Housing Strategy that specifically addresses improving housing choice and
affordability within the Shire.
Such a Strategy should include an implementation plan which sets out the resourcing implications
and budget allocations for each action. It is suggested actions may broadly fall within the categories
of:
• Land use planning – including specific amendments to the local planning instruments;
• Advocacy – to other levels of government for changes and initiatives identified in this report;
and
• Partnerships –
o To deliver social and affordable housing
o With State Government to increase social housing supply in Noosa Shire
o With Commonwealth Government by seeking funding commitments for housing in Noosa
Shire
o With Community Housing Providers; and
o With other local governments
• Investment – committed by Council to deliver the agreed actions and advocacy
Noosa Housing Needs Assessment 2021 Page 8
Section 11
1. Introduction
1.1 Prior Housing Needs Assessment
In 2016-2017 a Housing Needs Assessment for Noosa Shire was prepared by Briggs & Mortar to
inform the preparation of a new planning scheme, in accordance with the requirements of the
Queensland State Planning Policy – State Interest Guideline, Housing Supply and Diversity, 2016.
The project aims as outlined by Council were to:
• Provide a clear understanding of Noosa Shire’s current housing situation and trends and
project housing needs into the future including those for specific groups (e.g. older people);
• Review competing interests between permanent residents and short-term visitors for housing
stock;
• Inform policy aimed at addressing housing needs shortages and improving housing choice
within the Shire.
In 2016 it was apparent that as a highly sought after and affluent coastal location, market conditions
had favoured the development of particularly large, low density and bespoke dwellings in many parts
of Noosa Shire where the focus was on lifestyle and amenity. As a consequence, Noosa Shire saw
various housing issues emerge including:
• Housing affordability, especially for low income households and key workers;
• A lack of accessible or adaptable housing for older people and people with special needs;
• A mismatch of housing size and household size (albeit some may be by choice or
circumstance);
• A shortage of affordable and appropriate aged accommodation;
• A lack of housing diversity, and particularly smaller dwellings;
• Low levels of social and emergency housing;
• Conflict between holiday makers and permanent residents.
This study informed Noosa Plan 2020 with the aim of addressing these issues to the extent possible
through land use planning.
Since the commencement of Noosa Plan 2020, circumstances in the local and broader national
housing market changed significantly, in part because of fiscal policy, interest rates and the impacts
of the COVID19 pandemic. In 2021 home ownership and affordable rental accommodation eludes
many low to moderate income earners, having an impact on the social and economic composition
and functioning of the Shire.
This report seeks to update the findings of the Briggs and Mortar report, and inform future local
policy, including planning scheme amendments.
1.2 Purpose of this Report
The purpose of this report is to present the facts and figures of the local housing market and to lay
bare the level of unmet housing need in Noosa Shire, now and into the future. The Housing Needs
Assessment accords with the requirements of the Queensland State Planning Policy in relation to
housing supply and diversity.
The State Interest Statement on Housing Supply and Diversity is: Diverse, accessible and well-
serviced housing, and land for housing, is provided and supports affordable housing outcomes.
One of the State Interest policies to be advanced in local planning schemes is that the development
of residential land is facilitated to address and cater for all groups in the current and projected
Noosa Housing Needs Assessment 2021 Page 9
Section 12
demographic, economic and social profile of the local government area, including households on low to moderate incomes. In September 2021, the State released “Integrating state interests in a planning scheme: Guidance for local governments”. This publication determines a housing needs assessment is necessary to estimate the required quantities of different dwelling types, sizes and tenures to best cater to the projected resident demographics in the local government area over the life of the planning scheme. And that such a document be undertaken every ten years to ensure up to date demographic data and trends informs the planning scheme provisions. While the last housing needs assessment was completed less than 5 years ago, much has changed in that period. While housing provision is not specifically the responsibility of Local Government, the Queensland Government has an expectation that Local Government planning schemes will support an adequate supply and diversity of housing through the identification of suitable land for housing development and inclusion of planning provisions that support the supply of a diverse range of housing that is high-quality, well-serviced and appropriately located. 1.3 Monitoring of Noosa Plan 2020 In approving the adoption of Noosa Plan 2020 in February 2020, the Minister of State Development, Manufacturing, Infrastructure and Planning placed several conditions on Noosa Council. This included the requirement that for a period of two years from commencement of the scheme in in July 2020, Council was to monitor the provisions relating to short-term accommodation, tourism and housing supply considering the outcomes sought across the residential zones. This was to include a detailed analysis of the existing situation within Noosa Shire, including numbers and types of short- term accommodation uses, and forecast the potential long term impacts of short-term accommodation across the residential zones, and have consideration to the state interests in housing supply and diversity. In addition to the Minister’s condition, Council also specifically resolved to monitor over a period of 2 years, the effectiveness of the provisions of Noosa Plan 2020 in enabling the delivery of housing choice and affordability to meet the diverse needs of the community, specifically housing for those in the community on low incomes, with special needs or in identified groups in need of community and affordable housing. The completion of this Housing Needs Assessment will inform these monitoring requirements. Noosa Housing Needs Assessment 2021 Page 10
Section 13
2. Housing Market Context
Noosa Shire is a very desirable place to live. The sub-tropical climate, landscape, surf beaches and
waterways, amenities and lifestyle have attracted visitors and residents for generations, joining long
term families who managed the landscape and harnessed food and forestry resources.
Located within a two hour drive of the Brisbane City CBD, the Shire enjoys good access to both the
capital and to major employment and service centres such as the principal regional activity centre of
Maroochydore. The expanding Sunshine Coast Airport, the railway line, the Bruce Highway and
Sunshine Motorway all ensure high levels of inwards and outwards trips each day.
Located at the northern end of South East Queensland Noosa Shire is widely known as being part
of the Sunshine Coast. However, it is also the southern gateway and includes part of the Great
Sandy Region. Unlike areas closer to the capital, Noosa Shire is not considered greater Brisbane
and retains a distinctive regional context. While sharing many common values the Shire is made up
of discreet subcultures depending on where one lives.
• Coastal urban communities have a casual outdoors lifestyle underpinned by a strong affinity
with the Beaches, Noosa River and other waterways, the National park and sport and
recreation facilities.
• Hinterland towns and villages have a strong sense of heritage and history. Rich with older
character buildings and large leafy yards, these towns and villages are family focussed with
outdoor recreation opportunities focussed on nearby bushlands and waterways.
• The residents of the rural and semi-rural areas have particularly close ties with the land
including bushland and farmlands. They enjoy seclusion with relatively easy access to goods
and services.
• Relative wilderness to the north of the Noosa River where ease of access is traded for secluded
lifestyles.
Figure 1 shows the regional location of Noosa Shire, whereas Figure 2 shows the settlement pattern
within Noosa Shire.
Noosa Housing Needs Assessment 2021 Page 11
Section 14
Figure 1 Regional Context of Noosa Shire
Noosa Housing Needs Assessment 2021 Page 12
Figure 1 Regional Context of Noosa Shire
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Noosa Housing Needs Assessment 2021 Page 12Section 15
Figure 2 Settlement Map of Noosa Shire
Noosa Housing Needs Assessment 2021 Page 13
Figure 2 Settlement Map of Noosa Shire
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Noosa Housing Needs Assessment 2021 Page 13Section 16
Housing stock in Noosa is noticeably dominated by medium to large detached houses plus semi-
attached or attached housing of at least three bedrooms. Older units are more likely to be two
bedrooms.
Since the turn of the 21st century Noosa Shire has experienced low levels of development as
developable land is depleted. Housing, in all forms, is limited and as demand outstrips supply, more
and more members of the community struggle to find housing suitable to their needs and
circumstances.
As the cost of land has significantly increased over the last couple of decades, the construction cost
of individual dwellings has also noticeably increased with a smaller number of high-end units being
developed in preference over a higher number of small modest units. In some cases, lots which
could yield two or three dwellings are developed for one new house and separate adjoining house
blocks have been bought and consolidated to allow for a larger home and outdoor recreation space.
The property sector has evolved to meet the increased expectation of home buyers and investors,
in a manner that maximises profitability. Consumer expectations of the 1970s and even 80s were
quite low compared to today. A larger floor plate results in more bedrooms, more bathrooms, multiple
living areas, outdoor entertainment areas and a double lock up garage.
Conversely the majority of households are made up of just one or two people1 and there is no
expectation this would change. However even small households with the means prefer larger
dwellings for both resale investment and for the ability to accommodate guests.
Over many decades subsequent Council decision makers have reflected the community wishes in
protecting the natural values of Noosa Shire and the lifestyle afforded by those values by ensuring
large tracts of open space, low rise / low scale development, quality built form and landscaping
provisions and an absence of city symbols. Unlike other local government areas Noosa Shire has
not depended on a momentum of growth and large scale, high rise and high density development
proposals have been rejected on the basis that they represented an overdevelopment of their site
and did not respect the scale or character of their neighbourhood.
Since the completion of the Briggs & Mortar report there have been significant changes within the
housing market throughout Australia. Interest rates have been exceptionally low and borrowing for
investment houses or holiday homes has become a favoured form of investment. Negative gearing
continues to offer tax benefits and is not likely to be wound back in the near future. While interest
rates are low and return on savings negligible, purchase prices are high so saving a 20% deposit
makes purchasing particularly difficult for first home buyers.
The Reserve Bank of Australia has published a research discussion paper2 that shows housing
prices are typically more sensitive to changes in interest rates in areas where land is limited and
more expensive. They suggest that lower interest rates increase housing wealth inequality, while
higher rates do the opposite.
Following a referral in July 2021, the Federal House of Representatives Standing Committee on Tax
and Revenue is conducting an inquiry into the contribution of tax and regulation on housing
affordability and supply, specifically they will—
• Examine the impact of current taxes, charges and regulatory settings at a Federal, State and
Local Government level on housing supply;
• Identify and assess the factors that promote or impede responsive housing supply at the
Federal, State and Local Government level; and
1 2016 median occupancy rate was 2.4 persons
2 Calvin He and Gianni La Cava (2020) “The Distributional Effects of Monetary Policy: Evidence from Local
Housing Markets”, a RBA Research Discussion Paper
Noosa Housing Needs Assessment 2021 Page 14
Section 17
• Examine the effectiveness of initiatives to improve housing supply in other jurisdictions and
their appropriateness in an Australian context.
Many informed submissions have been made and to date several public hearing have occurred.
The Planning Institute of Australia has made the point in its submission that housing unaffordability
cannot be solved by more supply in the market. A focus only on maximizing supply would
compromise the value of planning in shaping productive, liveable and sustainable cities and towns.
A genuine conversation about housing affordability needs to address factors influencing
unaffordability, including the market demand drivers, tax setting and property development
practices.3
In Noosa Shire there’s been a noticeable increase in the number of dwelling houses and other
attached and semi-attached forms of housing being offered either frequently or sporadically for short-
term holiday letting. Conversely there has been increasing pressure on traditional holiday resorts to
accommodate permanent residents, particularly one and two person households who wish to
downsize into smaller accommodation due to lack of availability in traditional residential areas.
Most recently international travel has been curbed significantly due to the COVID19 global pandemic
and Australians have sought domestic lifestyle destinations. Ex-pats abroad have returned to live in
local properties and there’s been an exodus from capital cities for regional lifestyle areas, particularly
in Queensland
Noosa Shire has seen an increased demand for permanent accommodation with a large number of
properties changing ownership and many properties exiting the permanent rental market in favour
of owner occupiers. In general terms demand for housing and holiday rentals is far exceeding supply.
The federal government has sought to address the challenge for home buyers in a number of ways.
The Family Home Guarantee is designed to assist single parents secure a loan with a deposit of just
2%. First Home buyers are now able to access some of their superannuation for a home deposit.
These schemes may assist some individuals but will not reduce the demand or cost of housing, just
increases the number of people in the buying market. Economists have suggested such schemes
drive prices higher.
The COVID19 economic downturn led to a temporary HomeBuilder grant for individuals and couples
who built or bought a new home or substantially renovated an existing home that they would occupy.
This was probably of most relevance for major renovations in Noosa Shire as new housing stock is
limited and the renovation had to be $150,000 or more in value.
At the same time people chose to put money into their homes, stimulating the construction,
landscape and furnishings sectors. Waiting times for trade work increasing. Building materials, floor
covering, plumbing supplies, furnishings etc. are all increasing in cost and decreasing in availability.
The Urban Developer suggests that a construction supply crisis is affecting residential development
projects across the country as a critical shortage of building materials delays commencement and
completion of projects with cost blowouts along the way. COVID19 has led to increased shipping
costs and the 2019-20 bushfires through Australia depleted supplies of structural pine, used for
house framing.4
CoreLogic’s quarterly measure of residential construction costs reveals a national increase of 3.8%
was recorded in the three months to September 2021, outpacing the Consumer Price Index of 0.8%
for the same period. This is accredited to a surge in new builds and renovations coupled with supply
chain disruptions and a shortage of materials. The Cordell Construction Cost Index (CCCI), formerly
known as the Cordell Housing Index Price (CHIP), shows this is the largest quarterly increase since
Q3 2000, when construction costs increased 7.2% after the introduction of the GST. Queensland’s
CCCI increased 3.8% during the September quarter, taking its annual increase to 8.0%, the highest
3 Planning Institute Australia (Sept 2021) Submission to House of Representatives Inquiry on Contribution of
Tax & Regulation on Housing Affordability & Supply in Australia
4 The Urban Developer, 6 June 2021, “Home-building at Breaking Point
Noosa Housing Needs Assessment 2021 Page 15
Section 18
in Australia. It is Queensland’s most significant annual rise in residential construction costs on record.5 Another federal incentive is aimed at encouraging older residents to “downsize” and free up family homes by allowing them to make a considerable one-off tax-free contribution to their superannuation. This may particularly appeal to the younger, more active retirees/ empty nesters. However, most of them will still be buying a replacement home somewhere and places like Noosa are very attractive to older and retiring persons making a coastal shift to destinations like Noosa Shire. The ABS releases data on lending indicators. Across Australia, the value of loan commitments rose significantly between June 2020 and June 2021. Figures 3 and 4 show that since January 2021 there has been fluctuation in the borrowing for owner occupier housing in Queensland. The first half of the year particularly saw a fall in new loan commitments for first home buyer owner occupiers. New loan commitments for investor housing have continued to increase. This has been largely driven by lending for the purchase of existing dwellings rather than new constructions. Figure 3 New loan commitments for owner occupier housing (seasonally adjusted), values, Queensland Source: Australian Bureau of Statistics, Lending indicators August 2021 5 CoreLogic 10 November 2021 Noosa Housing Needs Assessment 2021 Page 16
Section 19
Figure 4 New loan commitments for investor housing (seasonally adjusted), values, Queensland
Source: Australian Bureau of Statistics, Lending indicators August 2021
The Australian Housing and Urban Research Institute (AHURI)6 has made the recommendation that
the Australian Federal and State/Territory Governments adopt stimulus measures, targeted at
households and local markets where it is most needed such as:
• Large-scale funding of social housing development and refurbishment similar to the Social
Housing Initiative response to the Global Financial Crisis;
• Market specific demand side incentives that are tailored to the characteristics of individual
markets and the specific support required;
• Investment to prepare for a market recovery, responding to potential shifts in consumer
demand;
• Immediate reform of tax settings to encourage institutional investment in affordable housing
and build-to-rent developments.
6 Rowley, S., Crowe, A. Gilbert, C., Kruger, M., Leishman, C. and Zuo, J. (2020) Responding to the pandemic,
can building homes rebuild Australia?, AHURI Final Report No. 341, Australian Housing and Urban Research
Institute Limited, Melbourne
Noosa Housing Needs Assessment 2021 Page 17
Section 20
2.1 Housing Continuum
Many governments and organisations describe the range and types of housing in a community as
the housing continuum. This starts with a lack of housing, or homelessness, and includes emergency
shelters, supportive or transitional housing, social or subsidised housing, cooperative housing, then
to the broader market rental housing and home ownership. People in the first half of the continuum
are broadly in need of assistance to secure safe shelter. It can be argued that success relies on
people moving up the housing continuum, however the reality is that many will not progress out of
assisted housing. There are many different graphics used to illustrate the housing continuum. Figure
5 below is a simple reflection of the Queensland situation.
Figure 5 Housing Continuum
Private
Emergency Private
Homelessness market
or crisis Public Community market Home
& sleeping affordable
accom- housing rental housing rental ownership
rough rental
modation housing
housing
2.2 Unmet Housing Needs
In Noosa Shire, as with other areas there’s a spectrum of unmet housing needs, as illustrated below.
Not all of these are in crisis situations or unable to secure shelter, but they may not be able to secure
the type or tenure of homes that best meet their needs.
Figure 6 Unmet Housing Needs
Homeless, Low Income
Domestic individuals and
First Home
violence families People with a Key workers,
Buyers, Elderly
victims, including Disability Students
and others
Complex centrelink
support needs recipients
Crisis or emergency housing is needed for individuals or families who are homeless or at risk of
homelessness, including those sleeping rough, victims of domestic violence and people with
complex support needs.
Homelessness is a lack of one or more elements that represent ‘home’. When a person does not
have suitable accommodation alternatives, the ABS defines someone as homeless if their current
living arrangement:
• is a dwelling that is inadequate,
• has no tenure, or if their initial tenure is short and not extendable, or
• does not allow them to have control of, and access to, space for social relations.
At the 2016 census there were 110 people recorded as homeless in Noosa Shire, 68 of whom were
in Noosa Hinterland. The community present at Johns Landing at the time would have contributed
Noosa Housing Needs Assessment 2021 Page 18
Section 21
to this number. While people from Johns Landing were re-homed, more people have become homeless since the last census, however actual numbers are unknown and can change frequently. Council is aware of a significant number of individuals and families in overcrowded “couch surfing” conditions, camping, or living in cars. Equity Economics has published (July 2021).a report titled Nowhere to Go: The benefits of providing long-term social housing to women that have experienced domestic and family violence. This states that family and domestic violence is the leading cause of homelessness for women and children. Nationally, there was a noticeable increase in the number of women seeking specialist homelessness services that had experienced family and domestic violence. Interestingly, AHURI research has found there is no single definition of what constitutes a ‘key worker’. The term usually refers to employees in services that are essential to the functioning of a place but who earn low to moderate incomes. Importantly, key worker jobs require physical presence, few key workers can ‘work from home’. Proximity to work is particularly important in healthcare, emergency services, hospitality, classrooms and some community and welfare support roles in order for workers to cover shifts, quickly respond to increases in service demand and attend emergency situations. In regions with high housing costs, this makes access to appropriate and affordable housing in reasonable proximity to work difficult for key workers.7 The household characteristic of those in need of housing assistance is diverse and accordingly the form that suitable housing takes will differ. Separate homes, units, rooming accommodation, group homes etc may all be important components of the solution. Generally proximity to employment, schools, services and transport are important but sometimes quiet seclusion away from town centres is preferred. There are many residents of Noosa Shire who have low incomes, however not all of them are in need of housing assistance. There are for example a significant number on age pensions who own their own home. Unfortunately, the broader housing market of first-time home buyers, downsizers, growing families and new residents are competing in a very tight market and unless they qualify for some form of government assistance may not have their housing needs met in Noosa Shire. 2.3 Dwelling Targets ShapingSEQ. The South East Queensland Regional Plan, establishes that Noosa’s expected population growth will require 6,400 additional dwellings between 2016 and 2041, through its dwelling supply benchmarks. The State’s Land Supply and Development Monitoring Report 2021 acknowledges that the capacity and realistic availability of planned dwelling supply in Noosa provides more than the minimum 15 years of supply sought by ShapingSEQ. It notes the supply of uncompleted lot approvals is well below the minimum four years of supply sought by ShapingSEQ, however there are about 4.8 years of uncompleted multiple dwelling approvals in the Noosa consolidation area (refer section 2.4 for explanation). This monitoring process advises that dwelling approvals in Noosa increased by 19% when compared to the total dwelling growth recorded in 2019/20, largely influenced by the HomeBuilder government stimulus and low interest rate environment. This has led to Noosa continuing to track above or in- line with the average annual benchmark in both consolidation and expansion areas. Growth in the consolidation area should proportionately increase as expansion land supply diminishes. In other words, while outward expansion is constrained, there is still capacity for redevelopment within urban areas for a variety of higher density attached housing or small dwellings. 7 Gilbert, C., Nasreen, Z. and Gurran, N. (2021) Housing key workers: scoping challenges, aspirations, and policy responses for Australian cities, AHURI Final Report No. 355, Australian Housing and Urban Research Institute Limited, Melbourne. Noosa Housing Needs Assessment 2021 Page 19
Section 22
When compared to existing dwelling stock at the 2016 Census, recent dwelling approvals indicate an increase in housing diversity in Noosa, however detached houses still dominate. Dwelling density has increased slightly, consistent with SEQ’s preferred future8. Importantly, the dwelling targets are simply numbers and do not in themselves guarantee any proportion of affordability or diversity in housing. The “missing middle” concept was adopted by the State in ShapingSEQ to address the imbalance of housing in the region, which was dominated by single dwellings. To increase housing diversity, ShapingSEQ seeks to plan for and deliver a greater range of missing middle housing forms in suitable locations. Within ShapingSEQ, the missing middle housing form encapsulates those housing types between detached houses and high-rise apartments (for example a duplex, triplex, townhouses or walk-up apartments). Any of the attached or semi-attached housing outcomes allowed for in the Medium and High Density Residential zones of Noosa Shire would fall into this category. The State has commissioned a Paper on Local Housing Choice for Everyone, which identifies key challenges to delivering missing middle housing. It incorporates a toolbox of resources to assist local planning. 2.4 Expansion versus Consolidation Across the SEQ region benchmarks have been set on the basis of new growth being accommodated in both Consolidation Areas (60% - largely infill and redevelopment) and Expansion Areas (40% - largely greenfield development). For Noosa Shire specifically the ratio is 75% to 25%. In the Noosa consolidation area, the capacity of planned dwelling supply, from 2016 onwards, is about 5,140 dwellings, marginally above the consolidation 2041 dwelling supply benchmark of 4,800 dwellings. In the expansion area, the capacity and realistic availability of planned dwelling supply is about 2,600 and 2,500 dwellings respectively; above the expansion benchmark of 1,600 dwellings. Arguments for and against expansion and consolidation have existed for many years. Expansion, typically at or beyond the edges of urban areas requires new extensions to infrastructure, comes at the cost of natural areas or rural lands and brings with it higher transportation costs for the eventual residents. But at the same time, it allows for master planned developments where there is more flexibility for delivery of residential products. The natural values of Noosa Shire, including the coastline, the waterways, national parks, forests and farming lands frame and form natural barriers to urban growth. Combined with development constraints such as flood hazard and bushfire hazard, there is little opportunity for outward expansion. Infill development is generally seen as more efficient use of infrastructure and space but is often met with higher community resistance as it is generally at higher densities than existing development. People’s attachment to a place might come from their memories and intimate knowledge formed over many years. It might be more recent attachment, an instant attraction that has made them choose this place over others. Place attachment may be due to the social networks or the facilities that accommodate activities and interaction. There may be spiritual or cultural attachment to the natural landscape features or to places of significance (such as cemeteries, churches or historical buildings). Wherever there is strong place attachment, it should not be surprising that people want their existing community / urban environment to stay the same and likewise wish to age in place rather than move elsewhere. Growth and development is often seen as a threat and people’s first natural response may be a negative one stemming from fear. While there is generally an awareness that the local housing market is tight and many people are struggling to find suitable housing, there is frequently a view 8 2021 Draft Land Supply and Development Monitoring Report. Noosa Housing Needs Assessment 2021 Page 20
Section 23
that development of higher density housing or community housing should not be in the particular place they value. If residents of Noosa Shire consider their preferred future in terms of place and lifestyle, they might realise there are many elements dependent on the services of others. We could refer to all these as key workers. Some key workers earn lower incomes and simply cannot afford to live in Noosa Shire, or even live close enough for a reasonable commute. This will have an impact on the lifestyle of residents in the future if housing choice and affordability is not addressed. Therefore, residents and property owners are encouraged to consider their own future needs and the needs of others, the wider community and future generations. 2.5 Role of Local Government in Housing All levels of government contribute to shaping local housing markets and have a role to play in promoting better housing outcomes. Whilst the primary responsibility for housing policy and housing funding lies with the Commonwealth and State Governments, Local Governments may play a role in facilitating housing delivery and promoting the provision/retention of affordable housing. Noosa Council’s Corporate Plan 2018 includes a vision statement of Noosa Shire – Different by Nature, which sets an aspirational tone for future planning and thinking. To achieve this vision, it is implied Council needs to successfully adapt to whatever challenges arise. There is in 2021 a housing crisis throughout Australia and Queensland is particularly affected. Data shows there are over 50,000 people on the state’s social housing register and communities throughout the State are experiencing very low rental vacancies. Neither the Commonwealth nor State Governments are going to be able to redress this problem in a brief time frame nor without significant investment. The housing crisis is seen by the current Noosa Council as one of the most significant challenges it is likely to face. Accordingly like many other local governments, it is looking for ways to be part of the solution so that Noosa Shire may remain a safe, inclusive community into the future. The level of involvement Council takes will have a direct correlation to the quantum of resources it decides to commit to the problem. Figure 7 shows the spectrum of resources required from ‘Recognise’ escalating through to ‘Deliver’ being the highest commitment. Council has started to monitor the housing market, although not with a consistent and in-depth level of rigour that comes through a committed resource. Council, and the local State member for Noosa have sought progress from the State government in terms of both policy change and greater investment in housing. Engagement with other Councils, as well as the Local Government Association of Queensland is ongoing. The Noosa Plan 2020 includes some shifts in policy towards regulation, however stops short of a level of regulation that was hoped for in terms of delivering more social housing. While Council enjoys good working relationships with housing providers no formal partnerships have been formed or housing delivered. Assistance with the SHINE9 houses and facilitation of the YouTurn tiny homes are examples of small scale achievements. 9 Safe Housing in Noosa Everyday vital crisis accommodation for women and children escaping domestic and family violence Noosa Housing Needs Assessment 2021 Page 21
Section 24
Figure 7 Resourcing the alternative roles in the affordable housing space
Recognise
Monitor
Advocate
Regulate
Partner
Deliver
Noosa Housing Needs Assessment 2021 Page 22
Section 25
3. Population Review and Analysis 3.1 Statistical Geography The Briggs & Mortar Housing Needs Assessment was informed by a Community Profile prepared by AEC Group in 2015. This profile in turn was based on data from the 2011 residential census. It found that while Noosa Shire was similar to the rest of Queensland across many socio-economic indicators, it differed significantly in two areas:- • Noosa Shire’s population is older and aging faster than the rest of the state; and • Noosa Shire has a greater reliance on tourism for its economy than the rest of the State Care needs to be taken when comparing 2011 and 2016 census statistics for Noosa Shire because census geography changed over that period. In 2011 Noosa was part of the Sunshine Coast LGA and upon de-amalgamation in 2014 the State Statistician’s Office provided a “best fit” calibration of the Shire’s population. It lacked accuracy in border areas around Peregian Springs and Doonan, etc. The 2015 Community profile was reliant on this data. The 2016 census data for Noosa Shire is more reflective of the actual Shire boundary. Noosa Council LGA covers approximately 870 square kilometres and is made up of quite distinct communities within coastal urban areas, rural villages, and well serviced towns, as well as rural and semi-rural areas. These areas differ in many ways although there are common values. A closer review of the different areas is possible by analysis of the second level Statistical Areas (SA2s) of the Census geography. These are shown in Figures 2 and 3. Unfortunately, the SA2 of Noosa Hinterland still includes roughly 36 square kilometres of rural and rural residential areas outside the Shire Boundary. For that reason, the sum of the six SA2s will never match Shire figures exactly. A Census was conducted on Tuesday 10 August 2021. That data should become available in the second half of 2022. Noosa Housing Needs Assessment 2021 Page 23
Section 26
Figure 8 Noosa Shire LGA and the SA2s
Noosa Housing Needs Assessment 2021 Page 24
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aSection 27
Figure 9 Coastal SA2s compared to LGA boundary 3.2 Estimated Residential Population and Growth As at 30 June 2020, the estimated resident population for Noosa Shire LGA was 56,587 persons, which puts it at a little over 1% of the State’s population. Between 2010 and 2020 the average annual growth rate for Noosa’s resident population was just 1.1% compared to 1.6% for the State. Noosa Shire contributes 14.39% of the residential population of the Sunshine Coast SA4. Sunshine Coast LGA to the south has experienced an average annual growth rate of 2.6% for the 5 years to June 2020. To the north, Gympie Regional Council area has a population of some 52,935 persons and has an average annual growth rate of 1.3%, making it more comparable to Noosa Shire in some regards than larger LGAs to the south. Noosa Housing Needs Assessment 2021 Page 25
Section 28
Table 1 Estimated Resident Population and Growth
Area Estimated Resident Population10 Average annual growth rate
30 June 2020 2010-2020
Noosa Shire LGA 56,587 1.1%
Sunshine Coast SA4 393,049 2.3%
SEQ Region 3,625,230 2.1%
Queensland 5,176,186 1.6%
The most recent estimate of population and growth rates of each of these are listed below. As can
be seen Noosa Hinterland, which includes the town of Cooroy and villages of Kin Kin, Cooran,
Pomona and Boreen Point as well as Noosa North Shore and all the rural residential areas of the
Shire, has the highest population and the one experiencing the highest level of growth. Tewantin
has the second highest population, but growth rates have been very low over the last decade. The
population of the Peregian Beach – Marcus Beach SA2 is the lowest and has very little scope for
further growth through development or redevelopment. Short-term accommodation and holiday
homes may also have an impact on permanent occupation.
Table 2 Estimated Resident Population and Growth by SA2
SA2 Estimated resident population at Average annual growth rate
30 June 2020 2015-2020
Noosa Hinterland 24,287 1.7%
Tewantin 10,586 0.1%
Noosaville 9,533 1.3%
Noosa Heads 4,940 1.1%
Sunshine Beach 7,186 1.4%
Peregian Beach-Marcus 3,955 0.3%
Beach
The beachside SA2s and hinterland are the only areas with natural population increase, all other
SA2s have been growing through inward migration.
According to the 2018 edition of the Queensland Government population projections the population
of Noosa Shire is projected to increase from 54,033 persons in 2016 to 64,999 persons in 2041. This
would equate to an average annual growth rate of just 0.7% over that 25 year period. By comparison
Sunshine Coast Regional Council is forecast to experience a rate of 2.2%, and the State’s figure is
1.6%.
10 The estimated resident population (ERP) figure is the official population estimate, updated annually by the
State.
Noosa Housing Needs Assessment 2021 Page 26
Section 29
Within Noosa Shire the highest projected growth will be experienced in Noosa Heads with a
projected 2016-2041 average annual growth rate of 1.2%, assuming all remaining attached housing
capacity is taken up and occupied by permanent residents.
Noosa hinterland is projected to experience an average annual growth rate of 0.9% and Noosaville
0.7%. Projected growth rates for all other SA2s are quite low (0.4% for both Tewantin and Sunshine
Beach and 0.1% for Peregian Beach-Marcus beach).
Table 3 Projected Populations to 30 June 2016-2041
Area 2016 2021 2026 2031 2036 2041 Average
annual
growth rate
Noosa LGA 54,033 56,308 59,357 61,640 63,411 64,999 0.7%
Noosa 22,667 23,845 25,535 26,771 27,676 28,304 0.9%
Hinterland
Tewantin 10,505 10,610 10,851 11,104 11,353 11,591 0.4%
Noosaville 9,059 9,330 9,772 10,131 10,450 10,729 0.7%
Noosa Heads 4,716 5,127 5,544 5,878 6,152 6,370 1.2%
Sunshine 6,871 7,042 7,255 7,366 7,412 7,663 0.4%
Beach
Peregian 3,868 4,006 4,053 4,042 4,019 3,993 0.1%
Beach –
Marcus Beach
Sunshine 357,422 407,733 454,198 498,425 541,446 583,002 2.0%
Coast SA4
Queensland 4,848,877 5,261,567 5,722,780 6,206,566 6,686,604 7,161,661 1.6%
Source: Queensland Government Population Projections, 2018 edition (medium series)
ABS records and releases statistics on internal migration at a state/territory level as well as a capital
city V’s rest of state level. Figure 10 below shows how Queensland has been gaining through internal
migration over the last couple of years.
Noosa Housing Needs Assessment 2021 Page 27
Section 30
Figure 10 Net internal migration to Queensland since 2019
12000
10000
8000
6000
4000
2000
0
Jun-19 Sep-19 Dec-19 Mar-20 Jun-20 Sep-20 Dec-20 Mar-21
Source: ABS, Regional internal migration estimates
Regional Movers Index11 is defined as movement of Commonwealth Bank of Australia personal
customers from capital areas to regional areas. This is customers changing their addresses as stored
in CBA technological systems, providing they had stayed at their previous address for 6 months prior
to moving to be counted. It maintains that population flow from capital cities to regional areas has
grown strongly over the past year and that the latest level of movement is the largest since early
2018.
The ABS reports that the SA4 of Sunshine Coast (of which Noosa is part) received a net gain of
6,230 people through internal migration in the 2019-20 financial year.12
In the March 2021 quarter, Noosa Shire saw the largest growth in inward migration from capitals
among all LGAs, at 49%. The real estate industry is also reporting a large proportion of new residents
from interstate (particularly Melbourne) given the impact of COVID19 on the liveability of their home
city.
Demographic experts, .id Informed Decisions, recently reviewed the inward and outward
movements to and from Bass Coast in Victoria, a destination with some relevant similarities
with Noosa Shire. Many of the coastal villages, particularly on Phillip Island, are characterised
by large numbers of holiday and second homes. Traditionally it gains families with children
as well as empty nesters and retirees. These in-migration flows are countered by a loss of
young adults aged 18-24 years to larger urban centres in search of education, employment
and entertainment.
Since 2016 in-migration has been increasing, and fewer departures (most noticeably in
2020). People already living in coastal and regional areas stayed put rather than move to
11 Regional Australia Institute and the Commonwealth Bank of Australia (28 June 2021) Regional Movers Index
12 ABS (23/04/2021) Migration, Australia: Statistics on Australia's international migration, internal migration
(interstate and intrastate), and the population by country of birth - Reference period 2019-20 financial year.
Noosa Housing Needs Assessment 2021 Page 28
Section 31
more populated cities (such as Melbourne) which were in and out of lockdowns. The usual
appeal of the city was lessened and university students were studying remotely online.
This lead to overall population growth and put pressure on the housing market and
affordability. Most housing stock consists of detached houses, so availability of apartments,
units and townhouses has particularly been tight, for both purchase and rent.
.id noted that when housing options become unaffordable to residents, including key workers,
they leave in search of more affordable housing elsewhere. This not only disconnects people
from their community but also results in employment and economic instability for regional
communities. An unaffordable housing market affects an area's ability to attract and retain
essential/key workers13
While there has been many new households moving to Noosa Shire during 2020 -2021, it is not clear
whether this will be a temporary “bump” as a result of COVID and whether newer residents return to
larger metropolitan areas or whether they stay long term in Noosa Shire. Sustained growth could not
be accommodated without significant changes to housing, traffic, carparking, infrastructure and
services.
3.3 Age Characteristics
As at 30 June 2019, the median age for Noosa Shire was 49.0 years, having been rapidly rising from
40.5 in 2001. Over the same period the median age for the state rose from 35.0 to 37.4.
While only 25.7% of the Noosa Shire population was under the age of 25 years at 2019, 32.4% of
the State’s population fell into this bracket.
Between 2001 and 2019, the proportion of Noosa Shire residents aged 65 years and over increased
from 14.9% to 25.6%. Over that period there was an average annual growth rate of 4.5% in persons
65 years and over. In real number this has more than doubled from 6,460 people in 2001 to 14,301
people in 2019.
Over the same period the number of residents aged 25-44 years actually fell from 11,869 in 2001 to
10,208 in 2019 with only a very slight increase in the number of children under 15 years of age. This
represents adults in the age brackets typically forming families and the correlating children they are
raising. Simplistically therefore younger families are representing a decreased component of our
communities and retirees a far greater one.
According to the ABS, every one of the six SA2s is underrepresented in age groups under 45 years
when compared to the State. Noosaville and Noosa Heads are particularly under-represented in
children and young people with Tewantin also quite underrepresented in young adults. The 25-44
year olds which would correlate with the family forming age groups are most particularly under-
represented in Noosaville and Noosa Hinterland.
The age groups over 45 years are over-represented. People aged 45-64 are particularly over-
represented in the beaches and the hinterland, whereas people over 65 are particularly over-
represented in Noosaville, Tewantin and Noosa Heads.
According to State estimates the highest 2019 median ages were in Noosaville and Noosa Heads
with median ages of 54.7 and 51.0 respectively, considerably higher than the State’s figure of 37.4
years. Median age was lowest along the beaches but still 46.4 at Peregian Beach-Marcus Beach
and 46.6 at Sunshine Beach. In the future the median age is projected to get quite high with the
figure for Noosaville projected to reach as high as 62.2 years by 2041.
Table 4 below shows the projected change in Median age between 2001, 2021 and 2041. Noosaville
is forecast to show the greatest change over this period.
13 Nenad Petrovic (22 July 2021) “Understanding housing affordability – a case study from Regional Australia”
published by .id consulting Pty Ltd.
Noosa Housing Needs Assessment 2021 Page 29
Section 32
Table 4 Median Age by SA2 2001-2041
Area Median age in years as at 30 June
2001 2021 2041
Noosa Hinterland 39.8 46.7 48.2
Tewantin 42.0 49.9 56.2
Noosaville 42.3 55.3 62.2
Noosa Heads 46.5 53.4 58.1
Sunshine Beach 36.0 45.5 48.9
Peregian Beach - Marcus Beach 41.1 45.0 47.2
Source: Queensland Government Population Projections, 2018 edition (medium series)
Table 5 below shows 2016 residential populations for each of the 5 year age groups up to 85 and
one figure for everybody above this age for Noosa Shire as well as for the six SA2s within Noosa
Shire. It also shows what the population for each of those age groups is projected to be in the year
2041.
Highlighted in red text are the age groups projected to decrease in number over this period despite
population increases overall. With the exception of Noosa Hinterland all other SA2s are forecast to
have a decrease in at least some age group under 65 years of age. Tewantin, Noosaville, Sunshine
Beach and Peregian Beach-Marcus Beach particularly are affected.
Anecdotally however, there have been families moving here since the COVID-19 outbreak so it will
be interesting to see if this is reflected at all in the 2021 census.
The increasing proportion of residents who are no longer in the workforce means that many of the
jobs located within Noosa Shire are filled by people living outside the Shire. The aging population
leads to a high demand for aged care workers, health care workers, personal services etc. However
many workers in these fields may find accommodation in or close to Noosa Shire difficult to secure.
Noosa Housing Needs Assessment 2021 Page 30
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Table 5 Estimated Residential Population by Age 2016 and 2041
Age Statistical Area
Group
(in
years) Noosa LGA Noosa Tewantin Noosaville Noosa Heads Sunshine Peregian
Hinterland Beach Beach –
Marcus
Beach
2016 2041 2016 2041 2016 2041 2016 2041 2016 2041 2016 2041 2016 2041
0-4 2,388 2,482 1,065 1,238 480 443 351 306 189 204 290 276 165 161
5-9 3,122 3,148 1,568 1,711 591 508 390 357 215 265 403 357 269 220
10-14 3,345 3,633 1,592 1,909 630 564 459 470 185 267 525 497 272 235
15-19 2,918 3,395 1,301 1,666 570 567 442 478 222 279 429 460 214 218
20-24 2,104 2,146 850 1,012 411 391 330 241 193 197 288 277 159 147
25-29 2,127 2,057 732 854 391 361 346 259 185 154 348 318 167 152
30-34 2,320 2,431 888 1,109 476 416 339 263 216 216 345 353 170 184
35-39 2,795 3,029 1,224 1,480 501 475 412 365 238 267 378 377 240 252
40-44 3,603 3,689 1,624 1,834 686 594 528 490 286 312 525 466 279 293
45-49 3,911 4,191 1,830 2,100 670 656 589 570 302 352 586 573 318 316
50-54 4,247 4,447 1,910 2,141 695 658 632 602 350 388 606 598 353 350
55-59 4,341 4,481 1,967 2,044 698 707 689 637 395 455 559 594 325 310
60-64 4,232 4,441 1,811 1,974 700 698 816 737 372 447 523 561 265 263
65-69 4,352 4,967 1,733 2,029 835 816 882 943 501 610 440 576 226 248
70-74 3,335 4,807 1,175 1,761 730 892 733 1,043 375 598 291 489 180 217
75-79 2,142 4,217 738 1,432 521 864 505 1,042 190 474 174 369 134 195
80-84 1,374 3,486 368 1,021 400 842 307 896 145 408 101 268 84 124
85 and 1,373 3,953 291 990 520 1,139 309 1,030 157 479 60 256 48 110
over
Source: Qld Government (2018) Projected population (medium series), by five–year age group, 2016 to 2041
Noosa Housing Needs Assessment 2021 Page 31
Table 5 Estimated Residential Population by Age 2016 and 2041
Group
.
Hinterland eTY-le Beach -
Marcus
Beach
a CoE CO cco Goca coke
0-4 2,388 2,482 1,065 1,238 480 443 351 306 189 204 290 276 165 161
5-9 3,122 3,148 1,568 1,711 591 508 390 357 215 265 403 357 269 220
10-14. | 3,345 3,633 1,592 1,909 630 564 459 470 185 267 525 497 272 235
15-19 2,918 3,395 1,301 1,666 570 567 442 478 222 279 49429 460 214 218
20-24 2,104 2146 850 1,012 411 391 330 241 193 197 288 277 159 147
25-29 «2,127 2,057 732 854 391 361 346 259 185 154 348 318 167 152
30-34 = 2,320 2,431 888 1,109 476 416 339 263 216 216 345 353 170 + 184
35-39 =. 2,795 3,029 1,224 1,480 501 475 412 365 238 267 378 377 240 252
40-44 | 3603 3,689 1,624 1,834 686 594 528 490 286 312 525 466 279 293
45-49 | 3,911 4,191 1,830 2,100 670 656 589 570 302 362 586 573 318 316
50-54 4,247 4447 1,910 2,141 695 658 632 602 350 388 606 598 353 350
55-59 4341 4481 1,967 2,044 698 707 689 637 395 455 559 594 325 310
60-64 4232 4441 1,811 1,974 700 698 816 737 372 447 523 561 265 263
65-69 4352 4,967 1,733 2,029 835 816 882 943 501 610 440 576 226 248
70-74 = 3,835. «4,807 «1,175 1,761 730 892 733 1,048 375 598 291 489 180 217
75-79 «2,142 4,217 738 1,432 521 864 505 1,042 1909 474 174 369 134 195
80-84 1374 3,486 368 1,021 400 842 307 896 145 408 101 268 84. 124
85and 1,373 3,953 291 990 520 1,139 309 1,030 157 479 60 256 48 110
over
Source: Qid Government (2018) Projected population (medium series), by five-year age group, 2016 to 2041
Noosa Housing Needs Assessment 2021 Page 31Section 34
3.4 Ethnic Background
Noosa Shire’s population is relatively ethnically uniform, with high levels of Australian born, English
only speaking households.
The 2016 census data suggests 71.7% of Noosa’s population was born in Australia, being similar to
the proportion of 71.1% for the State. Some 7,863 residents were born overseas in English speaking
countries and 3,383 were born overseas in non-English speaking countries.
Further, 88.5% of the Noosa population speaks only English which is slightly higher than a figure of
81.2% for the State.
In 2016, 782 census respondents identified as Aboriginal and/or Torres Strait Islander, making 1.5%
of the population. Proportionally Indigenous persons are more likely to reside in Noosa Hinterland or
Tewantin SA2s.
3.5 Income
The 2016 census showed that residents of Noosa Shire had on average lower income levels than
other coastal parts of South East Queensland and the State as a whole. The following table provides
some averages for comparison.
Table 6 Median income comparisons Census 2016
Area Median total weekly Median total weekly Median total weekly
family income household income personal income
Noosa Shire LGA $1,403 $1,184 $595
Sunshine Coast $1,491 $1,275 $615
Regional Council LGA
Moreton Bay Regional $1,638 $1,413 $652
Council LGA
Redland City LGA $1,815 $1,521 $686
Gold Coast City LGA $1,657 $1,404 $666
Queensland State $1,661 $1,402 $660
In 2016 the median total personal income in Noosa Shire was $30,940 per year, compared to
$34,320 for the State and around $35,548 for South East Queensland.
29.1% of residents over 15 had a total personal income of less than $20,800 per year. A further
37.4% had a total personal income of between $20,800 and $51,999. In part this can be attributed
to higher numbers of retirees on fixed incomes.
The 2016 census data defines “low-income families” as families, in occupied private dwellings14,
whose family income was less than $650 per week or less than $33,800 per year. Noosa Shire had
14 Private dwellings are self-contained dwelling intended for long-term residential use. They must include
cooking and bathing facilities as building fixtures. Examples include houses, flats, semi-detached houses,
townhouses, apartments and self-contained retirement village units. They also includes 'Other dwellings' such
as dwellings attached to non-residential buildings and occupied caravans, cabins, houseboats, improvised
dwellings and tents, even though these may not ordinarily be intended for long term residential use or be self-
contained.
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1,531 low-income families, representing 10.4% of all families. This rate is higher than other coastal LGAs in South East Queensland and higher than the figure of 9.4% for the State. 3.6 Socio-economic considerations The unemployment rate in Noosa Shire at June quarter 2021 was 6.5%, representing 1,812 people. This figure is slightly lower than the 6.8% for the State. Figure 11 shows how the unemployment rate for Noosa Shire has tracked in comparison with the State over the last few years since the previous Housing Needs Assessment. It illustrates what was previously a noticeable gap has closed. Figure 11 Unemployment rate comparison Noosa Shire and Queensland Source: Queensland Treasury, Regional Profile derived from Australian Government, National Skills Commission, Small Area Labour Markets Australia, various editions In 2016 Noosa Shire had 565 families with children under 15 years of age with no parent employed. This represented 12.2% of all families with children under 15. This was lower than the rate of 13.8% for the State but higher than Sunshine Coast LGA where it was 11.2%. In Brisbane city the rate is just 9.0%. Table 7 addresses Department of Social Services payments. What is worth noting is that figures have dropped from late 2020 to second quarter 2021. While this could suggest an improvement in residents’ circumstances, it may also reflect that individuals or families reliant on DSS payments are leaving Noosa Shire. Noosa Housing Needs Assessment 2021 Page 33
Section 36
Table 7 Department of Social Services Payments Noosa Shire
Type of payment December December December June quarter
quarter 2018 quarter 2019 quarter 2020 2021
Recipients of the Age 7,758 7,875 8,138 8,091
pension
Recipients of the Disability 1,690 1,679 1,634 1,592
support pension
Recipients of Jobseeker 1,717 1,64215 3,204 2,305
Recipients of a Carer 1,378 1,378 1,366 1,336
allowance
Recipients of Family tax 3,132 3,033 3,013 2,936
benefit A.
Source: Queensland Treasury, Regional Profile derived from Department of Social Services, Payment Demographic Data.
For the population of the Shire these figures are typically slightly lower than State figures, with the
exception that the rate of jobseeker is higher.
In Noosa Shire only an estimated 56.6% of persons aged 65 years and over receive the Age pension
compared to 64.4% for the State. This suggests a higher rate of self-funded retirees. There is
however significant variation with Noosa Shire as the table below shows. Tewantin for example has
a higher than average rate.
Table 8 Age Pension Payments by SA2s
Area December Quarter 2020 June Quarter 2021
Recipients Rate per 100 persons aged Recipients Rate per 100 persons aged
65 years and over, as at 30 65 years and over, as at 30
June 2019. Person counts June 2019. Person counts
are based on ERP are based on ERP
Noosa 3,133 60.9 3,154 61.3
Hinterland
Tewantin 2,196 71.5 2,174 70.8
Noosaville 1,624 50.4 1,639 50.8
Noosa Heads 568 39.7 547 38.2
Sunshine Beach 611 46.6 593 45.2
Peregian Beach- 351 46.2 336 44.2
Marcus Beach
Queensland 63.8 64.4
Source: Queensland Treasury, Regional Profile derived from Department of Social Services, Payment Demographic Data.
Table 9 below looks at some of the indicators of people living with a disability, and how that differs
location to location.
Census 2016 recorded people needing help or assistance in one or more of the three core activity
areas of self-care, mobility and communication because of a long-term health condition (six months
or more), a disability (lasting six months or more), or old age. In 2016 there were 2,737 people in
Noosa shire (or 5.2% of the population) in need of assistance with a profound or severe disability.
This includes residents of any age and is not limited to recipients of social services payments. The
figure was proportionally on par with the State’s.
A carer allowance is a supplementary payment for carers who provide daily care and attention at
home for a person with a disability, severe medical condition or who is frail and aged.
15 In December quarter 2019 unemployment allowance was known as Newstart.
Noosa Housing Needs Assessment 2021 Page 34
Section 37
A disability support pension is income support for people 16 years of age and over who are unable
to work for 15 hours or more per week at or above the relevant minimum wage, independent of a
program of support due to permanent physical, intellectual or psychiatric impairment. It is not paid to
people eligible for an aged pension.
Table 9 below would suggest that Noosa Hinterland and Tewantin may be where disability support
including accessible housing would be in greatest need, both having higher than State average
figures.
Table 9 Disability Indicators by SA2s
Area In need of Carer allowance Disability support pension
assistance with June quarter 2021 June quarter 2021
profound or
severe disability
Census 2016
Persons Recipients Rate per 100 Recipients Rate per 100
persons aged 16 persons aged 16
years and over, as years and over, as
at 30 June 2019. at 30 June 2019.
Person counts are Person counts are
based on ERP based on ERP
Noosa 1,072 676 3.5 747 3.9
Hinterland
Tewantin 673 316 3.6 419 4.8
Noosaville 471 210 2.5 194 2.4
Noosa Heads 290 69 1.6 104 2.5
Sunshine 188 84 1.4 124 2.1
Beach
Peregian 152 51 1.6 67 2.1
Beach-Marcus
Beach
Queensland 3.2 4.0
Source: Queensland Treasury, Regional Profile derived from Department of Social Services, Payment Demographic Data.
Table 10 below specifically addresses families and includes some of the indicators of low income
families or families receiving social services support. Family tax benefit part A is a payment to help
with the cost of raising children. It is income tested on family income.
These figures suggest that Tewantin exceeds State figures in each of the indicators available, with
Noosa Hinterland also exceeding two and Noosaville and Noosa Heads each exceeding one.
However, as Census data is five years old it may not reflect the current environment.
Importantly, a family with no parent employed does not by definition mean they are a low income
family. There may be reasons parents are deliberately not in the workforce that do not suggest they
are unemployed or of a low income.
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Section 38
Table 10 Lower income family indicators
Area Family tax benefit A Low income families Families with
June quarter 2021 (less than $650 per children under 15
week or less than years with no parent
$33,800 per year) employed
Census 2016 Census 2016
Recipients Rate per 100 Number Percentage of all Number Percentage of
families with families families with
children under children under
15 years, as 15 years
at 30 June
2019
Noosa 1,434 64.1 682 10.9 259 12.3
Hinterland
Tewantin 641 69.6 330 11.5 125 13.9
Noosaville 383 56.0 261 10.9 78 12.0
Noosa Heads 164 47.1 123 9.8 30 9.4
Sunshine 330 47.3 153 8.5 56 8.6
Beach
Peregian 163 41.1 88 8.3 45 11.8
Beach-Marcus
Beach
Queensland 62.7 9.4 13.8
Source: Queensland Treasury, Regional Profile derived from Department of Social Services, Payment Demographic Data.
Estimates of unemployment and labour force are produced by the Commonwealth Department of
Employment, Skills, Small and Family Business. Within Noosa Shire there are quite different figures,
however all SA2s indicate lower levels of unemployment in the March 2021 quarter than in the
previous December 2020 quarter. Labour force participation is also of interest because while for
instance Noosa Heads has a low unemployment rate it apparently has just 2,314 residents in the
labour force. Peregian Beach – Marcus Beach has just 2,105 residents in the labour force. Noosa
Hinterland by comparison has 11,611 residents in the labour force at March quarter 2021.
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Section 39
Table 11 Unemployment and Jobseeker Recipients by SA2
Area Jobseeker Jobseeker Unemployed Unemployment
December quarter 2020 June quarter 2021 March rate
quarter 2021 March quarter
2021
Recipients Rate per Recipients Rate per Number percentage
100 persons 100 persons
aged 22 to aged 22 to
64 years, as 64 years, as
at 30 June at 30 June
2019 2019
Noosa 1,488 12.0 1,111 9.0 849 7.3
Hinterland
Tewantin 661 13.4 466 9.5 399 8.4
Noosaville 439 9.8 306 6.8 268 6.1
Noosa Heads 212 8.4 158 6.3 136 5.9
Sunshine 381 9.7 242 6.2 256 6.4
Beach
Peregian 209 9.7 146 6.7 133 6.3
Beach-
Marcus Beach
Queensland 10.3 7.9 7.3
Source: Queensland Treasury, Regional Profile derived from Department of Social Services, Payment Demographic Data.
Socio-Economic Indexes for Areas (SEIFA) is a summary measure of the social and economic
conditions of geographic areas across Australia. SEIFA, which comprises a number of indexes, is
generated by ABS from the Census of Population and Housing. In 2016 an Index of Relative Socio-
Economic Disadvantage was produced, ranking geographical areas in terms of their relative socio-
economic disadvantage. The index focuses on low-income earners, relatively lower education
attainment, high unemployment and dwellings without motor vehicles. Low index values represent
areas of most disadvantage and high values represent areas of least disadvantage.
Noosa Shire as a whole is considered to fall within the 4th quintile, meaning it is reasonably
advantaged. In 2016 Noosa Shire had a SEIFA score of 999 so just below the Australian average of
1000. Both Tewantin and Noosa Hinterland (representing the higher populations) are below that
national average at 857 and 994 respectively, while all others are above. However, when SA2s are
broken down even further all of them include SA1s with scores of less than 1000 and Tewantin and
Noosa Hinterland each had SA1s with scores of less than 900. The lowest SA1 score in the Shire is
843 and the highest is 1140.
In terms of housing, there is an argument to direct further social housing to areas where there are
more residents in needs of assistance, such as Tewantin and the hinterland. However another
approach may be to direct additional social housing to coastal areas such as Noosa Heads and
Noosaville which have proximity to a greater proportion of employment and services. It is likely both
approaches are important as needs are varied.
Noosa Housing Needs Assessment 2021 Page 37
Section 40
Figure 12 Map of Index of Relative Socio-economic Advantage and Disadvantage ratings 3.7 Economic & Employment Characteristics The Working Population Profile from the 2016 Census of Population and Housing data based on employed persons aged 15 years and over by place of work16. It indicated that— • 15.1% of workers were employed in the Accommodation and food services industry • 14.4% of workers were employed in the Retail trade industry • 13.2% of workers were employed in Health care and social assistance • 8.4% of workers were employed in Construction industry • 8.1% of workers were employed in Education and training industry By comparison, 2016 census analysis by place of usual residence17 show that— • 13.1% of employed persons worked in Health care and social assistance industry • 12.2% of employed persons worked in Accommodation and food services industry 16 This is where the employment is based not where the employee lives. The worker is not necessarily a resident of Noosa Shire. 17 This is where the employee lives, not where their job is located. They may leave Noosa Shire for work. Noosa Housing Needs Assessment 2021 Page 38
Section 41
• 11.6% of employed persons worked in Retail trade industry
• 10.7% of employed persons worked in Construction industry
• 8.3% of employed persons worked in Education and training industry
Based on the National Economics microsimulation model, there were 24,286 jobs located in Noosa
Shire in the year ending June 202018. This was down by 394 from the year before. Jobs are not
necessarily full-time and the value of a job varies across areas.
According to the National Institute of Economic and Industry Research (NIEIR) as compiled and
presented in economy.id by .id informed decisions the 2019/20 year saw:
• 15.0% of employment in the Accommodation and food services industry;
• 13.4% of employment in Health care and social assistance;
• 12.8% of employment in the Retail trade industry;
• 12.1% of employment in Construction; and
• 8.9% of employment in Education and training
Breaking this down further the top five industry subdivisions of employment for workers in Noosa
Shire were:
1. Food and beverage services (11.0%)
2. Construction services (7.3%)
3. Other store-based retailing (7.2%)
4. Professional, scientific and technical services except computer system design and related
services (6.6%)
5. Preschool and school education (6.2%)
The number of local workers in some industries increased noticeably between 2014/15 and 2019/20.
For example, Construction (+351 local workers), Professional, Scientific and Technical Services
(+230 local workers), Education and Training (+229 local workers), Accommodation and Food
Services (+223 local workers).
Health care and social assistance industry had the highest percentage of part-time workers (56.9%),
followed by Retail trade (54.4%) then Accommodation and food services (52.4%).
The Census 2016 occupation data has been broken down into Blue collar occupation groups (such
as Technicians and Trades Workers, Machinery Operators and Drivers, and Labourers) and White
collar occupation groups (such as Managers, Professionals, Community and Personal Service
Workers, Clerical and Administrative Workers and Sales Workers).
The data suggests that in Noosa Shire the most frequent total personal income range for both was
$20,800-$33,799. Compared to the State figures Noosa Shire employment is over-represented in
the lower wage categories and under-represented in the higher wage categories for both.
18 Noosa Shire Council economic profile prepared by .id informed decisions
Noosa Housing Needs Assessment 2021 Page 39
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Table 12 Occupation by total personal income, Noosa Shire and Queensland, 2016
Total personal annual income Noosa Shire Queensland
Blue collar White collar Blue collar White collar
number % number % % %
Negative/Nil income 46 0.8 153 1.1 0.7 0.8
$1–$7,799 278 4.9 670 4.7 3.2 3.7
$7,800–$15,599 295 5.2 689 4.9 3.7 4.0
$16,000–$20,799 385 6.8 780 5.5 4.5 4.2
$20,800–$33,799 1,234 21.7 2,591 18.3 15.3 13.2
$33,800–$41,599 926 16.3 1,957 13.8 13.2 10.2
$41,600–$51,599 887 15.6 1,798 12.7 15.8 11.9
$52,000–$64,999 722 12.7 1,677 11.9 14.8 13.0
$65,400–$77,999 368 6.5 1,025 7.2 9.0 9.7
$78,000–$103,999 322 5.7 1,503 10.6 10.8 14.7
$104,000 or more 140 2.5 1,126 8.0 7.5 13.5
Total 5,693 100.0 14,141 100.0 100.0 100.0
Source: ABS, Census of Population and Housing, 2016, Working Population Profile - W17 (place of
work)
ABS Census 2016 Journey to Work data said of the 20,084 local workers in Noosa Shire, 14,309 or
71.2% also live in the Shire. 24.5% of workers live in the Sunshine Coast Regional council area and
2.4% lived in Gympie Regional Council area.
At a SA3 level, the 2016 Census suggests close to 78% of employed persons working in Noosa
Shire usually lived in the SA3s of Noosa Hinterland (which includes Doonan and Verrierdale) and
Noosa (which includes Peregian Springs).
3.8 Impact of COVID19 on employment and income
Since March 2020 the ABS has kept and published data on weekly payroll jobs and wages in
Australia to analyse the impact of COVID-19. Data has been split by States, by sex, by age and by
industry sectors.
It clearly shows a dramatic decrease in jobs and wages between mid-March and mid-April 2020 as
a result of border closures and national lockdowns. Some restrictions eased in late April 2020,
resulting in a steady climb in payroll jobs and wages. The recovery in payroll jobs (and to a lesser
extent wages) plateaued into August 2020, as the impact of the second wave of COVID-19 cases in
Victoria became evident.
The data is not LGA specific but shows that payroll jobs the Sunshine Coast SA4 dropped by 10.7%
between 14 March and 11 April 2020. In that period the number of jobs in the SA3 of Noosa
Noosa Housing Needs Assessment 2021 Page 40
Section 43
Hinterland dropped by 13.2% (they have since recovered to previous levels). In the SA3 of Noosa (which includes Peregian Springs) the number of jobs fell by 15%, but it was not until 18 April 2020 that it hit that low point. Between 14 March and 18 April 2020, the number of jobs in the Accommodation and food services industry sector dropped by 33.4%, nationwide and wages dropped by 30.3%. This was the most impacted sector, followed by Arts and recreation services but significantly higher than any others. Other industries of significance to Noosa Sire experienced medium to moderate negative changes in jobs: Education and Training (-9.6%); Retail trade (-8.3%); Health care and social assistance (- 4.7%); and Construction (-4.4%). Figure 13 National percentage change in payroll jobs by industry, between 14 March and 18 April 2020 Source: ABS “A year of COVID-19 through payroll jobs and wages statistics: Payroll jobs and wages since Australia's 100th case of COVID-19" 30 March 2021 The recovery in payroll jobs in accommodation and food services has been slow at a national level. The overall change between 14 Mar 2020 and 13 Mar 2021 was -8.1%. By 3 July 2021 it was still 3.5% lower than the 14 March 2020. Other industries have been stronger in recovery and by July 2021 were recording a higher number of jobs than first quarter 2020. For instance, between 14 March 2020 and 3 July 2021 there was an increase of 7.9% in health care and social assistance jobs; an increase of 2.7% in construction jobs; an increase of 2.4% in retail trade jobs and an increase of 1.0% in education and training jobs. Noosa Housing Needs Assessment 2021 Page 41
Section 44
Considering the top industry subdivisions of Noosa Shire, Food and Beverage Services were the hardest hit. Nationally it had 35.6% less jobs at 11 April 2020 than it had at 14 March. One year on it had not fully regained the numbers. Construction Services did not suffer such a significant loss: jobs dropped by 4.5% but by July 2020 had recovered to the mid-March levels. Jobs in Other store-based retail dropped by 10.6% by 11 April 2020. Jobs in Professional, scientific and technical services except computer system design and related services dropped by 4.4% and jobs in Preschool and school education dropped by 11.9%. Workers between the ages of 15 and 19 years of age experienced the largest drop in jobs and wages. For these young people employee jobs dropped by 9.9% between 14 March and 4 April 2020. Their wages dropped by 12.7% in that fortnight. Also hit hard were 20 to 29 year olds, for whom employee jobs dropped by 8.8% and total wages dropped by 9.1%. While all age groups were affected, employees in age groups 50-59 and 60 to 69 years fared slightly better with job losses of 3.8% and 4.0% respectively and wage loss of 5.5% and 5.7% respectively. 3.9 Implications for housing sector The above subsections indicate that there are many people in Noosa Shire who are on low incomes, have insecure employment, are older and may be isolated from family, are living with physical disability or other impairment. These residents particularly face challenges securing housing that meet their needs and budgets. Unless there is diversity in housing types, including housing that is both affordable and physically suitable, the situation will worsen. Housing stress is typically described as occurring where a lower income household (i.e. households in the bottom 40% of income distribution) is spending more than 30% of its gross household income on housing costs. The Queensland Statistician’s Office has sourced data from the Australian Government Department of Social Services, Housing dataset in compiling a measure of affordability of private rent for low income tenants. Income and rent are recorded for family and lone person households only and not for the combined circumstances of group households. Only tenants receiving Centrelink assistance and renting privately are included19. Table 13 below suggests that for each SA2 in Noosa Shire the percentage of low income tenants paying more than 30% of their income on rent was higher than the State figure. It was particularly high in coastal areas. Since June 2019 rents have risen significantly so the situation is likely to have worsened. 19 Family tax benefit part A base rate recipients, low income working households and self-funded retirees who are not receiving Centrelink benefits are excluded. Noosa Housing Needs Assessment 2021 Page 42
Section 45
Table 13 Private rental affordability for low income tenants, 30 June 2019
Area Rent 30% or more of gross income Total low income private rental
for low income tenants tenants
number % number
Noosa Hinterland 494 42.3 1,167
Tewantin 383 50.9 753
Noosaville 331 64.4 514
Noosa Heads 125 63.8 196
Sunshine Beach 202 66.7 303
Peregian Beach – 121 61.7 196
Marcus Beach
Noosa Shire 1,604 53.0 3,024
Queensland 129,639 40.8 317,880
There is a great personal toll on people who lack secure long term housing. There is a proven link
between housing insecurity and mental health problems including stress, anxiety and depression.
Physical health can also be affected where people are living in poor building conditions or
overcrowded environments.
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4. Housing and Household Characteristics 4.1 Households In 2016 Noosa Shire had an average household size of 2.4 persons, slightly lower than the State’s figure of 2.6 persons. Within Noosa, the SA2s have differing figures: highest in Noosa Hinterland at 2.6 and lowest in Noosaville at 2.1. Most dwellings have more bedrooms than occupants. The State average is 0.8 persons per bedroom. This matches Noosa Hinterland, Peregian Beach-Marcus Beach and Sunshine Beach, however Tewantin, Noosaville and Noosa Heads have 0.7 persons per bedroom. In 2016 there was a count of 4,954 lone person households in Noosa Shire. Between 2006 and 2016, the number of lone person households increased by 18%. Between 2006 and 2016 the number of couple only households increased by 18.3%. Couple only households represented 31.9% of households in Noosa Shire, a figure noticeably higher than the State’s at 25.9%. At 2016, 49.2% of families in Noosa Shire were couple families with no children. This was high compared to 39.4% for the State where there was a higher proportion of couple families with children. At 2016 Noosa Shire had 2,267 one-parent families. There was difference throughout the Shire with 58.1% of families in Noosa Heads and 57.4% of families in Noosaville being couple families with no children. The beach side SA2’s and the hinterland had higher proportions of couple families with children. Tewantin and Sunshine Beach had higher proportions of one-parent families (18.9% and 18% respectively). At 2016, 29.6% of occupied private dwellings in Noosaville were lone person households. The figure was only 19.5% in Noosa Hinterland. Group households are less common in Noosa Shire, accounting for just 3.8% of occupied private dwellings at 2016. Sunshine Beach and Noosa Heads had the highest rates of group households. Noosa Hinterland had the highest rate of multiple family households. 4.2 Dwelling Type The ABS, Census of Population and Housing, 2016, Time Series Profile suggests that the number of occupied private dwellings in Noosa Shire rose from 21,391 in 2006 to 22,110 in 2016. This difference of only 719 is not reflective of the number of new dwellings built over that period. Many of the dwellings in the Shire are not occupied by residents. Council’s building approval data shows a net increase of over 2,500 dwellings since Noosa Council reformed at January 2014. Building data preceding that date is less readily available. Apartments accounted for 17.7% of occupied private dwellings in Noosa Shire in 2006 and 8.1% in 2016. The number of apartment style occupied private dwellings (which includes flats and units) actually fell from 3,776 in 2006 to 1,796 in 2016 despite new apartments being approved over that period. This suggests many unoccupied apartments (refer more detail on unoccupied dwellings at section 8.2). In 2016 76.4% of the occupied private dwellings in Noosa Shire were separate houses. This is just slightly over the figure of 74.7% for the State. 12.1% were semi-detached and 8.1% were apartments. At 2016 Noosa Hinterland had the highest number of occupied private dwellings at 7,789. Of these 96.1% were separate houses. Peregian Beach - Marcus Beach had just 1,474 occupied private dwellings and Noosa Heads had 1,764. Noosa Housing Needs Assessment 2021 Page 44
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Table 14 Dwelling Structure at 2016 by SA2 for occupied private dwellings
Area Separate Semi-detached Apartment Caravan (inc Other (inc Total
House (inc (inc units, cabins, improvised home,
townhouse, flats) houseboats) tent, flat attached
duplex) to shop etc)
Noosa 7,482 45 108 53 43 7,789
Hinterland
Tewantin 3,320 504 187 30 3 4,055
Noosaville 2,202 1,013 432 14 3 3,691
Noosa 1,319 121 302 0 0 1,764
Heads
Sunshine 1,666 504 336 0 0 2,517
Beach
Peregian 1,112 255 99 3 0 1,474
Beach-
Marcus
Beach
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5. State Plan-making System The State has established a plan-making system within Queensland's planning framework, requiring a level of consistency amongst local planning instruments. The state's interests are set out in the State Planning Policy and Regional Plans, governed by the Planning Act 2016. These State planning instruments set out what the state government has identified as planning matters of key state and regional interest, and guide growth management across the state. 5.1 ShapingSEQ, SEQ Regional Plan Since 2005, Noosa Shire has been covered by versions of the SEQ Regional Plan. The most recent, ShapingSEQ was released in 2017. This plans for nearly 1.9 million additional people in the state’s south east region by the year 2041. This growth is to be distributed amongst the 12 LGAs that contribute to the region, most noticeably in Brisbane, Gold Coast, Ipswich, Logan, Moreton Bay and Sunshine Coast, where population growth is measured in the hundreds of thousands. The Plan provides for the residential population of Noosa Shire to grow from 54,000 in 2016 to 63,000 in 2041. To accommodate this population growth it sets dwelling supply benchmarks. For Noosa they are as indicated below. Between 2016 and 2041 Noosa Shire requires an additional 6,400 dwellings made up of 4,800 infill dwellings in the consolidation area (existing urban area) and 1,600 in the expansion areas (on the edges of the urban area). Figure 14 Dwelling Supply benchmarks to 2041 ShapingSEQ considered Noosa Shire as part of the northern sub-region. Table 15 and Table 16 show the expected population growth, and dwelling supply benchmarks for the sub-region, to 2041. Noosa Housing Needs Assessment 2021 Page 46
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Table 15 Northern sub-region current estimates and future supply benchmarks Table 16 Northern sub-region consolidation and expansion dwelling supply benchmarks Figure 15 Planned dwelling supply compared to ShapingSEQ benchmarks Source: Measures that Matter 2020 Noosa Housing Needs Assessment 2021 Page 47
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Figure 16 Dwelling growth
Source: Measures that Matter 2020
5.2 State Planning Policy
The 2017 State Planning Policy includes the following State interest in housing supply and diversity:
Diverse, accessible and well-serviced housing, and land for housing, is provided and supports
affordable housing outcomes.
All of the following state interest policies must be appropriately integrated in planning and
development outcomes, where relevant.
1. Land for housing development and redevelopment in areas that are accessible and well-
connected to services, employment and infrastructure are identified.
2. The development of residential land is facilitated to address and cater for all groups in the
current and projected demographic, economic and social profile of the local government area,
including households on low to moderate incomes.
3. A diverse, affordable and comprehensive range of housing options in accessible and well-
serviced locations, is facilitated through:
a) appropriate, responsive and proactive zoning
b) supporting an appropriate mix of lot sizes and dwelling types, including housing for
seniors and people requiring assisted living
c) considering incentives to promote affordable and social housing outcomes, particularly in
areas in close proximity to services and amenities.
4. Best practice, innovative, and adaptable housing design and siting is provided for and
encouraged.
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5. Sufficient land for housing is provided in appropriate locations to support the projected
nonresident workforce population associated with approved largescale mining, agriculture,
industry or infrastructure projects.
In preparing the Noosa Plan 2020 Council was guided by these principles and the Minister was
satisfied the SPP is appropriately integrated in the plan.
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6. State Housing System
6.1 Queensland Housing Strategy
In 2017 the State adopted a Housing Strategy which had at its core the objective that every
Queenslander have access to a safe, secure and affordable home that meets their needs and
enables participation in social and economic life. The strategy is supported by the Housing Strategy
Action Plan 2017-2020, the Aboriginal and Torres Strait Islander Housing Action Plan 2019-2023
and the Housing and Homelessness Action Plan 2021-2025.
In 2021 the Housing and Homelessness Action Plan has been developed in the context of current
housing market conditions and need. It reaffirms the objectives of The Queensland Housing Strategy
to deliver more social and affordable homes and to transform the way housing services are delivered.
The 20 specific aspirations are as follows:
1. 6,365 new social housing homes across the state.
2. Support growth, sustainability and innovation of the community housing sector.
3. Deliver social and affordable housing using state planning and economic development tools.
4. Enhance Queenslanders’ access to private rental and home ownership.
5. Work with regional councils to increase and diversify the supply of housing, including
opportunities for alternative government and non-government investment and incentives.
6. Prevent homelessness and support vulnerable people to stay in their homes.
7. Develop a formalised service delivery framework between state government agencies to
prevent people exiting government services into homelessness:
• better use of investment across government to respond to the needs of people
experiencing or at risk of homelessness
• clear roles and responsibilities
• improved information sharing and formalised referral pathways between agencies to
strengthen responses for people with complex needs.
8. Establish a cross-agency monitoring and evaluation approach to assess the effectiveness of
joint approaches to preventing homelessness.
9. Deliver integrated health and housing responses
10. Build social inclusion and participation by leveraging community infrastructure including
neighbourhood and community centres to:
• provide access to support services
• make art more accessible in the community
• provide spaces for creation of art and social activities.
11. Assist vulnerable young people to achieve social and economic independence through an
integrated framework of housing with support.
12. Promote rights, choice, control, accessibility and inclusion in housing with support for people
with disability.
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13. Provide culturally responsive housing with support through a frontline service offer for
Aboriginal and Torres Strait Islander peoples across the housing continuum, including through
implementing culturally responsive pathway planning and care coordination.
14. Deliver enhanced frontline service responses for women and families experiencing or at risk
of domestic and family violence through a specialist response team and flexible assistance
packages.
15. Develop and deliver housing with support for older Queenslanders experiencing or at risk of
homelessness including responses for older women, working with the aged care, health and
disability sectors.
16. Deliver rental law reform in Queensland, including minimum housing standards, that better
protects renters and lessors and improves stability in the rental market.
17. Finalise implementation of retirement villages reforms to village financial statements and
contract requirements and implement government's response to the independent panel's
review of timeframes for payment of resident exit entitlements and buyback requirements.
18. Deliver improvements for residential (manufactured home) parks and residential services to
address:
• concerns about site rent increases and unsold manufactured homes in residential parks
• the impact of significant changes in the community affecting residential services, to
ensure resident safety, fair trading and viability of the residential service industry.
19. Enhance the consumer experience and industry engagement across residential (manufactured
home) parks, residential services and retirement villages including through:
• targeted communication, compliance and best practice guidance approaches, including
introduction of a retirement village comparison website
• exploring greater support for consumer-operated retirement villages and residential
parks (such as the potential for home owner co-operatives) to give consumers greater
choice and control over their retirement living arrangements.
20. Explore options to improve Queenslanders' access to pre-contractual advice about residential
(manufactured home) parks and retirement villages and to timely and consistent decision-
making to help them resolve housing issues and disputes.
6.2 Inclusionary planning
Of particular interest are planning actions to:
• Investigate introducing inclusionary planning requirements into the planning framework.
• Investigate mandating social and affordable housing as part of Priority Development Areas,
infrastructure initiatives, and the development or sale of state-owned land suitable for large
scale residential development.
• Review the planning framework’s approach to regulating residential development.
“Inclusionary” planning provisions (or inclusionary zoning) are land use planning interventions that
either mandate or create incentives for the delivery of affordable housing dwellings, usually as a
proportion of a bigger development. Mandatory provisions have been used in South Australia,
Victoria, New South Wales and the ACT, however the Queensland planning system has not
embraced them. There have been some targets and incentives, particularly for priority development
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areas and large master-planned greenfield communities, but not typically at a smaller scale or within
existing urban areas.
6.3 Housing Construction
A Housing Construction Jobs Program was created to facilitate partnerships between the State with
the private sector and community housing providers to deliver jobs, drive economic growth at a local
level and ensure better community outcomes. It promised the following Sunshine Coast Capital
Investment over five years:
• $71M investment
• 243 new social homes
• 40 full time jobs per year
An EOI targeting the Sunshine Coast region was released in August 2019. According to the
Department, 34 development proposals were submitted, however it is difficult to ascertain more than
one contract was awarded.
Partnering for Growth, also emerging out of the Housing Strategy providing a framework for the
community housing sector to work with State government to provide new and innovative housing
support and an increased supply of community and affordable housing. It is understood Churches of
Christ Housing Services, is commencing construction of 40 new affordable homes for seniors in
Caloundra through this project.
Across the State, 79% of high and very high need social housing applicants require a one or two-
bedroom dwelling. A target of 80% one or two-bedroom dwellings has been set and exceeded in
new social housing stock.20
“QuickStarts Qld” is purportedly an accelerated investment in regional Queensland housing.
Through nine development regions across Queensland, the State is constructing more social
housing through partnerships with community housing providers as well as capital build projects
delivered by government. It is suggested it will deliver 2,765 new homes across the State by 2025.
The Queensland Government’s two year $40million “Help to Home” program seeks to deliver up to
1,000 properties via the private rental market through head-leasing arrangements, relying on
privately owned single or multi-unit dwellings which may be new to market or have not previously
been available through the private residential market
The Queensland 2021-22 Budget suggested a commitment of $38.5 million for Social housing to
expand and improve social housing on the Sunshine Coast.
6.4 Proposed rental housing reform
In May 2021 the Member for South Brisbane, introduced to parliament the Residential Tenancies
and Rooming Accommodation (Tenants’ Rights) and Other Legislation Amendment Bill 2021,
designed to improve rights for renters in Queensland, address rental affordability concerns and
improve access to safe and secure housing. Specifically it aims to bring rent increases in line with
inflation, to curb arbitrary rent increases which are not justified by improvements to the property.
In June 2021 The Minister for Communities and Housing introduced to parliament the Housing
Legislation Amendment Bill 2021 which is intended to deliver key objectives of the Housing Strategy
including:
• Modernisation - a commitment to reviewing and modernising rental laws to better protect
tenants and lessors and improve housing stability in the rental market.
20 Queensland Government & University of Queensland, September 2020, Interim Progress Analysis for the
evaluation of the Queensland Housing Strategy 2017-2027.
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• Connections - ensuring that vulnerable community members are supported to sustain
tenancies in appropriate and secure housing that facilitates social, economic, and cultural
participation.
• Confidence - supporting a fair and responsive housing system through reforms to legislation
and regulations that enhance the safety and dignity of Queenslanders and promote the
provision of a range of housing options that meet the diverse needs of Queenslanders.
• The Bill will amend the:
• Residential Tenancies and Rooming Accommodation Act 2008
• Retirement Villages Act 1999
• Residential Tenancies and Rooming Accommodation Regulation 2009
• Residential Tenancies and Rooming Accommodation (COVID-19 Emergency Response)
Regulation 2020
The Parliamentary committee considered these Bills concurrently and tabled their reports on 16
August 2021 recommending that the Residential Tenancies and Rooming Accommodation (Tenants'
Rights) and Other Legislation Amendment Bill 2021 not be passed but that the Housing Legislation
Amendment Bill 2021 be passed.
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7. Noosa Plan 2020
Noosa Plan 2020 commenced on 31 July 2020. It was prepared by Noosa Council and informed by
long term policy, emerging best practice and extensive community input. The planning scheme was
prepared according to the Planning Act 2016, Planning Regulation 2017 and the Minister’s
Guidelines and Rules. In terms of structure and content it generally follows a template produced by
the State government to enhance consistency within planning schemes across the State.
The findings and recommendations of the 2017 Briggs & Mortar Housing Needs Assessment
informed Noosa Plan 2020 which was first drafted in 2018. State interest reviews, legal advice and
community and industry feedback further shaped the Plan to the final version adopted in 2020.
7.1 Strategic Framework
The Strategic Framework (Part 3) of the Plan acknowledges that one of the key challenges to focus
on is diversity in housing choice to provide suitable residential accommodation for low income
earners, key workers and elderly people.
One of the Strategic Intents of the Plan focusses on housing to meet diverse needs of the community.
The residents of Noosa Shire are part of an inclusive community where diversity is valued.
Different housing types and styles are needed to provide choices, ensuring people’s housing
needs are catered for, regardless of age and mobility, household size and budget. By
providing housing choice in each local area, a greater mix of people and ages are
accommodated and this can provide a more diverse community.
The quality lifestyle sought by residents of the Shire demands high standards of residential
amenity. Factors such as design, density, accessibility, security, landscaped open space,
proximity and availability of services and transport are important considerations.
While low density, predominantly detached housing, prevails in Noosa Shire, as the
population ages, there is likely to be increased demand for a range of housing that suits
single and couple households in locations with good public transport and access to services
and facilities. Historically, around 80 per cent of housing in the Shire is separate houses
comprising three or more bedrooms. Residential units and communal living such as
retirement and aged care make up the remainder. To best meet future housing needs, it is
projected that by 2041 some 30 per cent of the total housing stock should be multi--unit
housing styles, particularly small one and two bedroom dwellings to cater for smaller
households.
By 2041, development needs to cater for around 6,400 more dwellings than existed at the
2016 census. Future housing demand, particularly for smaller dwellings, is likely to be best
met through 'infill' development within existing residential areas, on well-located
under-utilised land, and within town centres in a mixed-use format. Residential growth in and
around existing centres with ready access to goods and services, attractive public spaces
and community activities is encouraged. High standards of residential amenity and building
design is expected. However, style and size may vary to accommodate a range of household
types and income levels. Incentives are offered to exemplary and innovative residential
developments that advance sustainable housing choice including affordable options for aging
in place and housing key workers.
The cost of housing can be high, so special effort is needed to allow for an element of
affordability within the diversity of new housing provided. A range of measures are provided
to encourage housing affordability including requirements for small dwelling units close to
centres and facilitating an additional small dwelling on traditional house sites. Providing
housing choice for key workers to support key industry sectors is a particular focus.
Established retirement communities, aged care facilities and transportable home parks are
also protected. Land set aside for retirement and aged care facilities at Tewantin, Cooroy,
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Noosa Heads, Noosaville and Sunrise Beach will help cater for demand. The initiatives of
Federal and State Government and community based not-for-profit entities in delivering more
affordable housing for residents in need are likely to be an important component of new
housing.
Given Noosa Shire's popularity as a destination for visitors, accommodation is under
increasing pressure from both residents and guests. Visitor accommodation areas at Noosa
Heads, Noosaville and Noosa North Shore are protected for visitors to the exclusion of
permanent occupants. The limited number of sites available for new resort development is
protected for this purpose. Conversely, neighbourhoods of permanent residents are
protected from influxes of short-term visitors whose interests and priorities are not compatible
with residential amenity. Party houses are restricted from establishing in Noosa Shire.
The concept of 'ageing in place' is supported through the planning scheme by providing
additional housing choice such as encouraging small dwellings and secondary dwellings,
promoting adaptable housing standards, identifying land for retirement and aged care
accommodation, and protecting existing aged care sites. The importance of remaining in or
near one’s community is acknowledged so aged care and independent retirement living
opportunities are encouraged in hinterland towns as well as in the coastal urban areas of the
Shire. Improving the accessibility and usability of housing through universal or adaptable
housing principles will allow people to stay in their own home longer or find new housing
suitable to their physical needs.
Historically, the majority of dwellings are three of more bedrooms and the predominant
household size is only one or two persons. Consequently, priority is given to increasing
opportunities for smaller housing to better meet the needs of small households. As there is a
correlation between the size of housing and the cost of housing this should improve
affordability. New attached housing in or close to centres will generally be limited to small
dwellings. Within established urban residential neighbourhoods, a small dwelling can be
established within the existing built form of a house or adjacent to it on the same property.
Protecting existing communities of relocatable homes and allowing for additional
communities is also important as are other models of housing, such as rooming
accommodation.
The well serviced hinterland towns such as Cooroy and Pomona have ongoing scope for
growth. Increasing housing in rural or remote parts of the Shire is not a sustainable solution
to meet housing needs as it increases the number of people living away from employment,
services and facilities and puts increased pressure on rural areas through conflicts with rural
production, pressure on rural roads and cumulative environmental impacts.
The Strategic Outcomes for housing choice by 2041 are:
(a) Residential development occurs on land that is suited and designated for the intended
form of housing and avoids any unnecessary removal of significant vegetation.
(b) Residential development occurs where it is not in the vicinity of land uses that would
adversely impact the amenity of residents.
(c) Residential development only occurs where it will not prevent or inhibit the conduct of
existing land uses that are legitimately located or planned for in that location.
(d) Residential development is designed within the planned capacity of infrastructure
including roads, water and sewerage.
(e) A wide range of housing is spread throughout the existing urban areas of Noosa Shire
and responds to housing needs associated with factors such as changing
demographics, changing composition of households, and lifestyle choices.
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(f) Additional smaller dwellings on traditional house sites and small dwelling units in
centres are provided so that the housing mix and choice better reflect community
needs.
(g) Council will support the Federal and State Government and community based not-for-
profit entities in delivering a diverse and comprehensive range of social and affordable
housing options.
(h) Major residential developments will be encouraged to incorporate a range of housing
types including more affordable housing products for the entry buyer and low-income
housing markets.
(i) Noosa Shire's exceptional residential character and amenity is derived from the
subtropical climate, relatively low scale/low rise built environment, quality building
designs and the presence of landscaped open space around buildings. This amenity
and character is maintained owing to its significance in protecting the lifestyle valued by
residents.
(j) Carparking associated with residential buildings is not the dominant built form element
when viewed from the street front.
(k) Outside of the urban footprint limited areas for additional rural residential lifestyles
provide residents with a semi-rural living option. These areas are well defined and do
not extend beyond existing rural residential zoned land. Development in these areas is
located and designed to avoid conflicts with rural land uses or environmental values.
(l) The planning scheme protects sites for specific housing styles such as residential care,
retirement villages and relocatable home parks.
(m) The planning scheme protects areas for visitor accommodation where a range of
accommodation styles support the local tourism industry.
(n) Neighbourhoods of permanent housing are protected from short-term visitor
accommodation that would impact on the amenity enjoyed by residents, however
residents may share their home with guests in a well managed fashion to limit potential
impacts.
(o) Party houses, as defined under the Planning Act 2016, are restricted from being
established in Noosa Shire.
7.2 Residential Zones
The Low Density Residential Zone accommodates predominantly detached housing and therefore
also secondary dwellings, community residences and rooming accommodation where they can be
integrated with the low density residential built form. This is the predominant urban residential zone
throughout the Shire. Lot sizes and built form vary significantly based on location and age of
development. The planning scheme specifies a minimum lot size of 600m2 however in the hinterland
villages of Kin Kin, Boreen Point, Cooran and Pomona it is 2,000m2 or 1,000m2 if connected to
sewerage reticulation. There are however areas or large lots that cannot be further developed
because they are either constrained or outside the SEQ Regional Plan Urban Footprint (such as
Noosa North Shore). With the exception of home-hosted accommodation or the occupational letting
of your principal place of residence, visitor accommodation is not supported in the Low Density
Residential zone.
The Medium Density Residential Zone is intended to accommodate dual occupancies, community
residences, rooming accommodation, multiple dwellings, retirement facilities, relocatable home park
facilities and short-term accommodation.
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Small dwellings and co-housing models are encouraged to integrate within the neighbourhoods to increase housing choice. There are numerous established holiday resorts included within this zone, and despite short-term accommodation being a consistent use, new development in the zone is predominantly intended for permanent residents. This zone occurs in most of the coastal urban areas of Noosa Shire, as well as in Cooroy and Pomona. The High Density Residential Zone is relatively limited, located in Noosaville, Noosa Heads, Sunshine Beach, Sunrise Beach and the southern end of Peregian Beach. In general, the building height is greater, typically three storeys. Much of the land is already developed to capacity with a mix of permanent housing and resorts, some key sites close to Noosa Junction and the Noosa Business Centre have scope for significant resident development. A wide range of accommodation activities are consistent in the zone, including multiple dwellings, relocatable home parks, residential care facilities, rooming accommodation and short-term accommodation. Historically most of the land zoned for multiple dwellings has coincided with proximity to the beaches, Noosa River and Noosa Hill. Medium Density and High Density Residential zoned land further from these areas, but still close to services, is important for housing diversity across the Shire. Also considered by the Planning Regulation as a “residential zone”, the Tourist Accommodation Zone, the purpose of which is to provide for short-term accommodation and community uses, and small-scale services, facilities and infrastructure to support short-term accommodation and tourist attractions. The Tourist Accommodation zone was generally applied to areas with a history of visitor accommodation zones and/or to specific key resort sites protected for visitor accommodation by the planning scheme or conditions of approval, to contribute to the tourism industry. Historical development approvals and existing use rights has resulted in permanent residents living in the Tourist Accommodation zone and visitor accommodation resorts located within the Medium Density and High Density Residential zones. In addition, around 800 houses in the Low Density Residential zone enjoy existing use rights for short-term accommodation. The Rural Residential Zone is not specifically categorised as a residential zone by the Regulation, but accommodates low density housing and semi-rural uses on large lots being the dominant form of development. While the Rural Residential zone may be suitable for a hospice, this zone is rarely appropriate for communal forms of housing. Likewise the Rural Zone is not a residential zone, but allows for a house and other limited forms of housing such as for bone fide farm employees. 7.3 Housing in other zones In addition to the residential zones, some forms of accommodation are allowed for in other zones. This includes residential care and retirement villages in the Community Facilities zone as well as mixed use development in the various centre zones, where Noosa Plan 2020 allows small dwellings in a mixed use format generally above non-residential uses. In the Rural Zone, caretaker’s accommodation is allowed subject to code assessment on a property of at least 20 hectares in area. It must be used for bona fide caretaking or property management purposes. Rural workers' accommodation for up to 10 people, can also be located on rural properties of 20 hectares or greater, subject to code assessment. It is limited to bona fide employees of a rural use carried out on site, and their immediate families. If the property is smaller, or the number of accommodated occupants is greater it would be subject to impact assessment. A Community residence (such as a hospice) is also allowed subject to code assessment in either the Rural or Rural Residential Zone. Caretaker’s accommodation is also permitted within Industrial zones where there is a bona fide caretaking requirement for the industrial use of the property. Noosa Housing Needs Assessment 2021 Page 57
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7.4 Land Use and Administrative Definitions
Section 7 of the Planning Regulation 2017 requires that a local planning scheme may adopt only the
use terms and their meanings as listed within schedule 3 of the regulation. It cannot add new land
uses or modify land uses. Further if a planning scheme includes an administrative term from the
regulation it must assign the same meaning as that within schedule 4 of the regulation.
Accordingly a defined land use term such as “dwelling house” or “dual occupancy” or “multiple
dwelling” should become consistent throughout the state.
Likewise the definition of a “secondary dwelling” which is an administrative term for a component
part of a dwelling house should be consistent throughout the state.
A planning scheme may include administrative terms other than those within schedule 4 of the
regulation as long as they do not offend or change the effect of one of the State definitions.
The Noosa Plan 2020 allows for the following accommodation activities, noting that some are
intended to occupy permanent or semi-permanent residents21 and some short-term visitors (tourists
or travellers):
Permanent residents Visitors
Caretaker’s accommodation Home-based business
Community residence Nature-based tourism
Dual occupancy Resort complex
Dwelling house Short-term accommodation
Dwelling unit Tourist park
Multiple dwelling
Relocatable home park
Residential care facility
Retirement facility
Rooming accommodation
Rural workers' accommodation
Within definitions there are sometimes specific inclusion of ancillary manager’s residence or staff or
support worker accommodation.
Some definitions, in isolation are difficult to comprehend. As an example, home-based business
means the use of a dwelling or domestic outbuilding on premises for a business activity that is
subordinate to the residential use of the premises. It specifically includes as an example offering bed
and breakfast accommodation. This is hosted accommodation provided while the host remains in
residence, not the use of a dwelling for short-term accommodation.
The following subsections are intended to unpack some of the definitions within the Noosa Plan 2020
and explain the difference between them.
21 While housing can be transitional in nature people who live here as their principal place of residence for at
least three consecutive months are generally considered as permanent.
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7.4.1 Dwelling house
The Planning Regulation 2017, and in turn the Noosa Plan 2020 includes the following definition of
a dwelling house—
dwelling house means a residential use of premises involving—
(a) 1 dwelling for a single household and any domestic outbuildings associated with the
dwelling; or
(b) 1 dwelling22 for a single household23, a secondary dwelling24 and any domestic
outbuildings associated with either dwelling.
The Department of State Development, Infrastructure, Local Government and Planning refers to
case law25 in advising that the occupants of the secondary dwelling must form part of the one
household as the residents of the balance of the house. Therefore they may be relatives or close
friends but with the intention to live together on a long term basis. The use of a secondary dwelling
by a separate or unconnected household does not comply with the definition as implemented by the
State and is therefore defined as a dual occupancy (see below).
This interpretation does not sit comfortably with many, and the definitions are not quite the same as
those of relevance within the Bundaberg case sited.
As a secondary dwelling is part of the land use definition of a house, it is therefore acceptable
development wherever a house is acceptable development (generally all of the residential zones
plus the rural and the rural residential zones). Acceptable outcomes within the relevant zone code,
the Low Density Housing Code and any relevant overlay codes need to be met.
The construction of a compliant secondary dwelling, (whether referred to as a granny flat, relative’s
apartment, annexed flat, studio or otherwise) either attached to, underneath or some distance from
the balance of the house does not change the land use from being a “dwelling house”.
In most cases a private building certifier will issue the permit for a secondary dwelling and classify it
as alterations or additions to the house. Therefore, it will not contribute to State monitoring as a new
or additional dwelling, as this monitoring is derived from building permit data.
Council officers check building approvals and since October 2016 Council have issued Infrastructure
Charges notices on 22026 secondary dwellings (equating to 0.8 per week) although less than 130 of
these were acknowledged on the building applications.
The RTA publishes information for property managers and owners stating they must ensure there is
nothing preventing the tenant from moving into the property (e.g. you may not rent out a granny flat
if it has not been approved by the local council).
22 dwelling means all or part of a building that—
(a) is used, or capable of being used, as a self-contained residence; and
(b) contains—
(i) food preparation facilities; and
(ii) a bath or shower; and
(iii) a toilet; and
(iv) a wash basin; and
(v) facilities for washing clothes.
23 household means 1 or more individuals who—
(a) live in a dwelling with the intent of living together on a long-term basis; and
(b) make common provision for food and other essentials for living.
24 secondary dwelling means a dwelling, whether attached or detached, that is used in conjunction with, and
subordinate to, a dwelling house on the same lot.
25 Katherine Lalis v Bundaberg Regional Council [2018] Qld Planning and Environment Court
26 Fifteen of these have lapsed or been cancelled
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Kids Under Cover is an Australian not-for-profit charity organisation supporting vulnerable
young people between the ages of 12 and 25 years who are either already homeless or at
risk of homelessness. They build relocatable, one and two bedroom studios, with a bathroom,
in the backyard of a family or carer’s home. The extra room relieves overcrowding, eases
tension and provides young people with a secure and stable environment. The studio remains
in place for as long as it’s required.
Studios are prefabricated, with its entire kit flat-packed with pre-assembled frames and
transported via truck to the installation location. Erected and fully fitted within 10 days, they
are demountable and able to be flat-packed for relocation up to four times.
These do not have kitchens so would qualify as part of the detached house, not even a
secondary dwelling.
7.4.2 Dual occupancy
The use definition of a dual occupancy (at times referred to as a duplex) is as follows:
dual occupancy—
(a) means a residential use of premises for 2 households involving—
(i) 2 dwellings (whether attached or detached) on a single lot or 2 dwellings (whether
attached or detached) on separate lots that share a common property; and
(ii) any domestic outbuilding associated with the dwellings; but
(b) does not include a residential use of premises that involves a secondary dwelling.
The Noosa Plan 2020 generally allows a dual occupancy in the Medium Density Residential and
High Density Residential zones, in the Tourist Accommodation Zone unless specifically excluded
(e.g. in Hastings Street and key resort sites), in the Major Centre Zone, District Centre Zone, Local
Centre Zone and Neighbourhood Centre Zone. In centre zones it is usually expected to form part of
a mixed use development. Dual occupancies might be considered as an underutilisation of land in
the Medium or High Density Residential zones if a greater number of dwellings could be achieved.
Numerous local governments in South East Queensland have found that a large proportion of new
houses in greenfield developments are being developed and marketed as “dual key” properties
taking advantage of secondary dwelling provisions in neighbourhoods where a dual occupancy
would not be allowed. In new estates where house blocks are smaller and roadways typically
narrower this is particularly leading to problems of overcrowding and parking congestion, yielding a
population noticeably greater than originally planned for. This in part is thought to be one of the
reasons the State seeks to hold a strict line on the definition of secondary dwelling.
7.4.3 Multiple dwellings
A Multiple dwelling means a residential use of premises involving 3 or more dwellings, whether
attached or detached, for separate households. These might be called flats, units, apartments, villa,
townhouses etc.
Noosa Plan 2020 allows multiple dwellings in the Medium Density Residential and High Density
Residential zones, in the Tourist Accommodation Zone unless specifically excluded (e.g. in Hastings
Street and key resort sites), in the Major Centre Zone, District Centre Zone, Local Centre Zone and
Neighbourhood Centre Zone. In centre zones it is usually expected to form part of a mixed use
development.
The inclusion of this use in the Medium Density Residential zone is particularly important and is in
some way a departure from the previous scheme which included a Semi-Attached Housing Zone
where development was limited to a duplex, and units not supported. Previous planning schemes
actually favoured duplexes over multiple dwellings in terms of plot ratio and site cover.
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The Noosa Plan has created an administrative term of “small dwellings” which means a dwelling that has no more than 100m² of gross floor area27. The plan provides bonus provisions for small dwellings. These bonuses include increased allowable plot ratio, increased allowable site cover, reduction in required landscaped open space and reduction in required carparking. As well as using these bonuses to encourage more small dwellings, they are specifically the only forms of dwellings supported in some areas, such as the centre zones. The Major Centre Zone at Noosa Junction allows for small dwellings in conjunction with non- residential uses in mixed use formats. The three storey height limit allows for one or two levels of business uses with dwellings above. The carparking requirements encourage these to be two bedroom units. Areas adjacent to Noosa Junction (including the former Noosa Bowls Club) have been included in the High Density Residential Zone and can accommodate three storey unit development. At the Noosa Business Centre, also in the Major Centre Zone there is a specific High Density Residential Precinct where multiple dwellings in a ratio of small dwellings to other dwellings of at least 3:1 is the preferred form of development. This can be developed to a height of 3 storeys. Additionally, the Village Mixed Use Precinct allows for small dwellings where in conjunction with non- residential uses in a mixed use format, also to a height of three storeys. The planning scheme requires that where the development for multiple dwellings occurs on Lot 3 RP884396 (the former Noosa Bowls club) and in the High Density Residential precinct of the Noosa Business Centre, dwellings must meet the needs of different households. The acceptable outcome seeks 20% of housing to be affordable housing and specifically 10% be social housing. In addition short-term accommodation is not a consistent land use in these locations. The District Centres at Noosaville, Tewantin and Cooroy also allow for small dwellings in conjunction with non-residential uses in mixed use formats. This allows for redevelopment of underdeveloped sites with “shop top” styles of housing and will activate the centres after hours. The various local centres and neighbourhood centres also allow for small dwellings in a mixed use format, providing residential floor space does not exceed the non-residential floor space. Again, this allows for “shop top” housing or in some cases dwellings behind businesses. There has been criticism that Noosa Council places high design standards on multiple housing, adding to the cost of the final housing. However community consultation over many years and various planning exercises has affirmed the local community expects quality built form and spaces between buildings for sunlight and vegetation. 7.4.4 Community Residences A community residence is a defined use for up to 6 children accommodated as part of a program or service under the Youth Justice Act 1992, or up to 6 persons who require assistance or support with daily living needs. The use also allows for one resident support worker. The Planning Regulation dictates that under the following circumstances a community residence must be supported in prescribed zones. 1. no more than 7 support workers attend the residence in a 24-hour period; and 2. at least 2 car parks are provided on the premises for use by residents and visitors; and 3. at least 1 of the car parks is suitable for persons with disabilities; and 27 gross floor area for a building, means the total floor area of all storeys of the building, measured from the outside of the external walls and the centre of any common walls of the building, other than areas used for— a) building services, plant or equipment; or b) access between levels; or c) a ground floor public lobby; or d) a mall; or e) parking, loading or manoeuvring vehicles; or f) unenclosed private balconies, whether roofed or not. Noosa Housing Needs Assessment 2021 Page 61
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4. at least 1 car park is provided on the premises for use by support workers.
Consequentially the Noosa Plan 2020 makes the use accepted development in the following zones:
Low Density Residential; Medium Density Residential; High Density Residential; and Rural
Residential, providing it meets the requirements of the Regulation.
It is also a consistent use in other zones including the Community Facilities Zone and the Rural
Zone. While it currently requires assessment this might be revisited for small facilities.
Some community residences have been built, including two in Tewantin built to platinum standard of
Liveable Housing by Endeavour Foundation as part of their “My Home, My Life initiative”.
The reported construction cost for one such purpose built five bedroom community residence to this
level of accessibility is over $570,000, in addition to land cost. 28
A community residence could be in a modular format with separate bedsits for the residents and
communal kitchen, dining and recreation space. The particular built form and accessibility standards
may differ depending on end users.
7.4.5 Rooming Accommodation
It’s not uncommon for a resident owner to informally rent spare rooms to boarders or lodgers. As this
would typically operate on a cash basis there is little way it would come to the attention of Council
and is generally encouraged as a means of utilising capacity within the existing housing stock. The
Residential Tenancies and Rooming Accommodation Act 2008 does not apply if the tenant is a
boarder or a lodger (except to the extent that it can relate to the taking of a bond if relevant).
Further, where unrelated people co-lease a property under a general tenancy agreement it is not
considered to be rooming accommodation but rather just a share house. All tenants share joint
responsibility for the whole property and reside as a single household.
Rooming accommodation is specifically defined as the use of premises for—
a) residential accommodation, if each resident—
i. has a right to occupy 1 or more rooms on the premises; and
ii. does not have a right to occupy the whole of the premises; and
iii. does not occupy a self-contained unit, as defined under the Residential Tenancies
and Rooming Accommodation Act 2008, schedule 2, or has only limited facilities
available for private use; and
iv. shares other rooms, facilities, furniture or equipment outside of the resident’s room
with 1 or more other residents, whether or not the rooms, facilities, furniture or
equipment are on the same or different premises; or
b) a manager’s residence, an office or providing food or other services to residents, if the use
is ancillary to the use in paragraph (a).
Importantly premises don’t qualify as Rooming Accommodation if residents occupy self-contained
units (i.e. it cannot be for example a studio apartment with kitchen, bathroom and toilet facilities).
Bigger examples of rooming accommodation include boarding houses, residential hostels29, a
monastery and off-site student accommodation, however it may just be domestic scale such as a
four or five bedroom house.
The State’s Residential Tenancy Authority provides for formal rooming accommodation agreement
which is a legally binding contract between the tenant and the property manager/owner, which like
any other lease will include conditions or rules. This includes prescribed rules applied to all rooming
accommodation in Queensland and house rules the property manager/owner can make. Rooming
accommodation agreements are not required if there are three or less rooms available for residents.
28Building approval PC20/0686 issued August 2020
29 As distinct from a backpackers hostel which is a form of Short-term accommodation
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In the Medium Density Residential Zone and the High Density Residential Zone the use of rooming
accommodation is code assessable. However, in the Low Density Residential Zone rooming
accommodation is accepted development subject to requirements if containing no more than five
bedrooms and accommodating no more than five beds.
Recently some property owners have converted low density dwelling houses into rooming
accommodation. This strictly requires a change of building classification (therefore a building
approval), regardless of whether physical building works are carried out. The building classification
will be required to be upgraded under the National Construction Code from a 1a structure to a Class
1b structure.
There are property investment advisors who are promoting a model of small boarding houses as a
means of recouping two to three times the rental return of a normal house.
Upon the issue of the building permit Council will calculate and issue an Infrastructure Charge Notice.
It is based on the development of rooming accommodation (to the scale it is), less a credit for the
original house. One recent example saw a house in Noosaville convert to rooming accommodation
of three suites plus two bedrooms. This triggered an infrastructure charge calculation of close to
$26,000 which may be a barrier to further conversions.
Some owners are doing these conversions without the necessary building permits and advertising
five separate “micro-apartments” each with its own bedroom, bathroom and kitchenette.
Aside from infrastructure charges, the provision of carparking is likely to be the other barrier to formal
conversion to rooming accommodation. The scheme requires 1 space per two bedrooms (or part
thereof). So, a four bedroom house would require two spaces but a five bedroom house would
require three spaces.
The long term owners and operators of a lodging house (rooming accommodation) in
Townsville suggest lodging houses are not an economic proposition for developers or
investors because they cannot split them into multiple independent ownership in the way that
a residential unit development can be. They suggest if builders and investors could profitably
build lodging houses with multiple titles there would be more properties that could offer short
to long term housing for crisis victims and those at risk of homelessness30.
7.4.6 Caretaker’s Residence and Dwelling Unit
Caretaker’s accommodation means the use of premises for a dwelling for a caretaker of a non-
residential use on the same premises. Alternatively a dwelling unit is one dwelling on the same
premises as a non-residential use, where the occupants are not caretaking the non-residential use.
This might be a single flat above a shop or office.
Caretaker’s accommodation is subject to planning approval and Council requires sufficient
justification there is a genuine need for caretaking or property management purposes such as the
need to manage a rural activity or demonstrated need for 24 hour supervision/care of buildings,
operations, plant or equipment. Since 2014, building approvals for 42 caretaker residences (or
ancillary dwellings as they were previously called) have been issued. A further 25 have development
approval but are not yet developed. There have been concerned these were not always occupied by
a caretaker.
A dwelling unit is supported in the centre zones but not in other non-residential zones. Places like
industrial estates should not include any residential use that is not directly required or justified by the
business on site as it creates reverse amenity conflicts.
30 Submission 7 to Standing Committee on Tax and Revenue inquiry into the contribution of tax and regulation
on housing affordability and supply in Australia.
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7.4.7 Short-term accommodation
Short-term accommodation is a defined use under Noosa Plan 2020 but was not previously defined
under the former Noosa Plan 2006. It means the use of premises for providing accommodation of
less than 3 consecutive months to tourists or travellers, but specifically does not include a hotel,
nature-based tourism, resort complex or tourist park. Examples of this use include backpacker
hostels, motels, or the short-term letting of a house, duplex, or multiple dwelling to visitors.
A domestic, class 1 building or one individual unit within a complex being used as short-term
accommodation is particularly important, as the property is not being used for permanent occupancy
as a dwelling house, dual occupancy or multiple dwelling and home to one or more individuals who
live in the dwelling on a long-term basis.
Prior to Noosa Plan 2020, Noosa’s former planning schemes protected visitor only accommodation
sites and allowed for visitor accommodation within its residential zones, consequently failing to
protect residential zones from visitor accommodation.
As a result, Noosa has had a history of some dwellings being interchangeably used as a permanent
place of residence or visitor accommodation. Prior to the Noosa Plan 2006, (the 1985 Planning
Scheme), dwellings constructed or approved as either a “duplex dwelling” or “multiple dwelling” had
approval to be used for either short-term visitor accommodation or permanent residential living,
unless the conditions of approval specifically said otherwise. This has meant that occupancy by
visitors or residents has changed over time based on market conditions at the time.
Most unit blocks in Noosa Shire pre-date 2006 and have existing use rights to continue use as either
short-term accommodation or permanent living without further planning approval.
In addition, prior to Noosa Plan 2020, a detached house could also be used for short-term
accommodation without planning approval and at least 800 of which may have existing use rights to
continue to be used for short-term accommodation.
Implications of short-term accommodation
The interchangeable use of pre 2006 units and pre Noosa Plan 2020 detached houses for short-
term accommodation was historically not of great concern as the “holiday houses” were few and
dispersed or the units were located in tourist dominated precincts or resorts. However, with the rise
in online booking platforms, such as Airbnb, Stayz and booking.com, the number of dwellings,
particularly detached houses and self-contained studios/granny flats, being used as short-term
accommodation has risen and crept into traditional permanent residential neighbourhoods. There
are for example 50 AirBnB listings of entire places (implying self-contained) within Tewantin and over
100 in the portion of Sunrise Beach to the west of David Low Way.
Conversely, low supply of traditional permanent unit blocks has increased demand for permanent
living within resorts or other tourist accommodation precincts.
In addition, many residents are using secondary dwellings, granny flats and other self-contained
dwellings meant for permanent occupancy for short-term accommodation, both hosted and
unhosted.
This has resulted in a number of issues including:
▪ short-term accommodation providing a higher return on investment leading to loss of housing
stock for permanent rental occupation
▪ increased housing prices with greater competition of limited stock for permanent purchase
▪ creep of short-term accommodation uses into permanent residential areas causing issues
around residential amenity, health and wellbeing impacts on permanent residents
▪ reduced permanent residents in some locations and streets reducing a sense of community,
feeling of safety and security
▪ conflict between permanent residents and visitors etc
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AEC was commissioned to do a cost benefit assessment of Council’s local law for short stay letting and home hosted accommodation and found there is a significant impact on traditional residential neighbourhoods from the increased level and type of activity associated with short stay accommodation, much of which is focussed on noise disturbances, amenity, safety and security31. 7.5 Carparking requirements The 2016 census results indicated 40.33% of occupied private dwellings had two motor vehicles (not including motor bikes or scooters); 12.9% had three motor vehicles and 5.9% had four or more motor vehicles. Given 66.5% of occupied dwellings had only one or two residents this indicates a strong reliance on private motor vehicles. Between 2011 and 2016 the number of households with 3 or more cars rose by 871, the number with 2 cars rose by 545. In the same five years the number with no car or one car decreased by 593. At 31 January 2020 there were 36,818 passenger vehicles registered in Noosa Shire and a further 9,524 light commercial vehicles. This was an increase from 33,767 passenger vehicles and 7,784 light commercial vehicles in 2015. Combined, that’s 4,791 additional vehicles in a period when the resident population increased 3,090, and does not include additional motorcycles, campervans, ridgid vehicles etc. One of the most common concerns of Noosa’s urban residents is the quantity of vehicles parked on street where associated with residential properties than can (or at least are) accommodated on the property. In some cases residents choose to use their garaging for other purposes. Older houses were only required to provide one onsite carparking space, new houses are required to provide two covered spaces. Hence in older neighbourhoods, where older housing stock prevails there are fewer double garages. There is a growing trend to convert double garages to habitable space such as bedrooms, then request relaxation for carports within the front setback area. Generally, this is an overdevelopment of the site and not supported, posing a cumulative threat to the amenity of the streetscape. Households now have more vehicles, or larger vehicles (including some with trailers) that are not easily accommodated onsite (the high proportion of employees in construction services is a testament to this). This situation is of most concern where street widths are narrow and where parking for non- residential purposes is also in demand. For example, in the SA2 of Noosa Heads, 42.3% of occupied private dwellings had two motor vehicles, 17.24% had three vehicles and nearly 5% had four or more vehicles. Given the average household size is just 2.2 people this represents a high number of vehicles. Figures were similar for the Sunshine Beach SA2 and both SA2s also accommodate the parking of many vehicles associated with employment, recreation and business. Table 17 below summarises the carparking requirements of the planning scheme for various residential uses. Where the number of spaces required is not a whole number, the number of spaces to be provided is the next highest whole number. Less carparking is required for small dwellings and in centre zones additional dedicated resident parking is actually discouraged. As covered carparking spaces contribute to the cost of housing, they should not be over-supplied in well serviced areas such as Noosa Junction and the Shire Business Centre. Conversely, away from centres reductions in on-site carparking requirements is only likely to exacerbate existing parking concerns. 31 AEC Group (September 2021) Cost Benefit Analysis Proposed Local Law Amendment: Short Stay Letting & Home Hosted Accommodation. Noosa Housing Needs Assessment 2021 Page 65
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Table 17 Noosa Plan 2020 carparking requirements for residential uses
Residential use Parking requirements
Caretaker’s accommodation One covered space
Dwelling unit One covered space
Dual occupancy Two covered spaces plus one additional space (two double garages
comply)
Dwelling house excluding a Two covered spaces
secondary dwelling
Dwelling house including a Two covered spaces plus one other space.
secondary dwelling
(Three spaces are required in total for a new dwelling house which
includes a secondary dwelling. However as historically the requirement
for a house was only one space, if a secondary dwelling is added to an
older house which already has two spaces, a third space is generally not
required.)
Multiple dwelling consisting of One covered space up to two bedrooms and two covered spaces for
small dwellings in a centre three or more bedrooms. (This is both a minimum AND a maximum)
zone
Multiple dwelling consisting of One covered space up to two bedrooms and two covered spaces for
small dwellings in a zone three or more bedrooms, plus one visitor space per four dwellings.
other than a centre zone
Multiple dwelling not Two covered spaces per dwelling greater than 100m² (spaces may be in
consisting of small dwellings tandem), plus one additional space per four dwellings.
Rooming accommodation One space for a manager in residence, if applicable plus one space per
two bedrooms
Short-term accommodation If for:
a) motel/rural cabins/guesthouse—
i) one space per accommodation unit/cabin; and
ii) one space per 10 accommodation units/cabins
B) dormitory style accommodation e.g. backpacker’s—
i) one space per 12 guests capable of being accommodated; and
ii) one space per staff member; and
iii) one space for a courtesy shuttle bus
c) dwellings—
i) if a small dwelling—one covered space up to two bedrooms and
two covered spaces for three or more bedrooms; and
ii) if not a small dwelling— two spaces; and
iii) one space per four dwellings.
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As can be seen in centre zones the parking requirement for small dwellings is both a minimum and maximum as the provision of dedicated carparking spaces actually adds to the expense of the housing. 7.6 Development opportunities for multiple dwellings Noosa Plan 2020 facilitates the development of multiple dwellings in some new areas where they were previously not supported. This includes— • the new high density residential precinct of the Noosa Business Centre; • the previous Noosa Bowls Club at Noosa Junction; • Wyandra Street, Delorme Street and Coral Tree Avenue, also near Noosa Junction; • Eumundi Noosa Road, Noosaville; Importantly, these areas, while well serviced, are away from the premium beachside and riverside locations, so they are less likely to cost as much as properties in those areas, however still not necessarily affordable for low income households. Noosa Housing Needs Assessment 2021 Page 67
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8. Existing Housing Supply and Dwelling
Characteristics
8.1 What is Housing Diversity?
The AHURI report on Urban regulation and diverse housing supply: An Investigative Panel32
suggests that diverse housing might be defined as any housing type that differs to the majority of
housing stock in terms of its:
• size and built form— e.g. it offers an alternative to detached housing;
• development model— it differs to the mainstream speculative land and development model;
or
• tenure— it is situated in the middle of the housing continuum, offering an alternative to
traditional ownership and rental tenures.
The report includes the following overview of these different elements of housing diversity,
including examples.
Figure 17 Elements of housing diversity with potential to support more affordable housing supply
8.2 Dwelling structures and household size
Table 18, extracted from the ABS 2016 Census of Population and Housing shows the count of
occupied private dwellings (excludes 'Visitors only' and 'Other non-classifiable' households) and all
persons counted in the dwelling on Census Night, including visitors from within Australia. Note, this
is not based on usual place of residence.
32 Gilbert, C., Rowley, S., Gurran, N., Leishman, C., Mouritz, M., Raynor, K. and Cornell, C. (Dec 2020) Urban
regulation and diverse housing supply: An Investigative Panel, AHURI Final Report No. 349, Australian
Housing and Urban Research Institute Limited, Melbourne.
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Table 18 Private Dwellings by type Noosa LGA, 2016 Census
Dwellings Persons
Occupied private dwellings:
Separate house 15,965 40,767
Semi-detached, row or terrace house, townhouse etc. with:
One storey 981 1,565
Two or more storeys 1,453 2,676
Total 2,436 4,240
Flat or apartment:
In a one or two storey block 968 1,648
In a three storey block 399 696
In a four or more storey block 83 152
Attached to a house 3 3
Total 1,452 2,500
Other dwelling:
Caravan 75 119
Cabin, houseboat 22 29
Improvised home, tent, sleepers out 38 84
House or flat attached to a shop, office, etc. 9 18
Total 145 247
Dwelling structure not stated 146 314
Total occupied private dwellings 20,143 48,073
Unoccupied private dwellings 4,671
Total private dwellings 24,815 48,073
Source: ABS 2016 Census of Population and Housing General Community Profile Noosa (S) LGA,
based on count of all persons enumerated in occupied private dwellings on Census Night (but
excludes visitor only households). Excludes usual residents who were temporarily absent on
Census Night.
The 18.8% of private dwellings (4,671 out of 24,815) that were unoccupied on census night was
higher than the State figure where 10.6% of private dwellings were unoccupied on census night. It
was also higher than the figure of 12.4% for the greater Sunshine Coast SA4. More specifically the
proportion of unoccupied private dwellings was as high as 36.68% in Noosa Heads, followed by
28.36% in Sunshine Beach, 27.72% in Peregian Beach - Marcus Beach, 19.65% in Noosaville and
11.26% in Noosa Hinterland. Only Tewantin had a figure lower than the State’s at 7.64%.33
The 2011 Census had shown 20,713 occupied private dwellings on Census night. This would
suggest a reduction in real numbers of occupied private dwellings, despite 5 years of new dwellings
being constructed. However as indicated earlier care needs to be taken with comparing census
results given boundary changes.
The ABS Census of Population and Housing, 2016, Time Series Profile suggests the following
figures for the breakdown of dwellings by structure. It suggests a reduction in occupied private
apartments (flats, units etc) despite many built over that decade. This could be a reflection of an
increase in holiday apartments.
33 ABS 2016 Census of Population and Housing General Community Profiles for each of the SA2s (released
October 2017)
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Table 19 Occupied private dwellings by dwelling structure Noosa LGA 2006-2016
Dwelling structure Census Year Total Change
2006 2011 2016 2006-2016
number % number % number % number %
Separate House 14,913 69.7 15,910 76.7 16,887 76.4 1,974 13.2
Semi-detached (includes 2,128 9.9 1,989 9.6 2,671 12.1 543 25.5
duplexes)
Apartment (includes 3,776 17.7 2,244 10.8 1,796 8.1 -1,980 -52.4
flats, units, villas)
Other (includes 567 2.7 580 2.8 572 2.6 5 0.9
Caravan, cabin,
houseboat; shop-top flat)
Total occupied private 21,391 100 20,738 100 22,110 100 719 3.4
dwelling (included where
type not stated)
Source: ABS 2016 Census of Population and Housing Time Series Profile Noosa (S) LGA, based
on place of enumeration, and includes visitor only households.
Table 20 below examines the structure of occupied private dwellings against the number of persons
usually resident, and how this has changed over the 2006 – 2016 inter-census decade. It suggests
there are significantly smaller numbers of households living in one or two storey unit blocks.
Council should possibly be concerned if there is a decline in attached housing being occupied by
permanent residents and an increase in units becoming holiday or short term let apartments,
especially if its growth strategy is focused on additional units. While dwelling targets may be met it
may be of limited benefit to housing residents if they are used for short term accommodation or
locked up as holiday units.
There is a specific reference to apartments attached to a house. 14 households were recorded living
in these in 2006 yet only three in 2016. This is particularly interesting as certainly the number of
secondary dwellings or relative apartments built during that period was not insignificant.
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Table 20 Structure of occupied private dwellings by number of persons usually resident 2006 – 2016, Noosa LGA
Number of persons usually resident
Dwelling
type and Six or
One Two Three Four Five Total
structure more
2006 2016 2006 2016 2006 2016 2006 2016 2006 2016 2006 2016 2006 2016
Separate house 2,458 2,957 5,876 6,810 2,245 2,517 2,197 2,364 833 939 343 379 13,956 15,965
Semi-detached,
row or terrace
house,
townhouse etc:
One storey 448 557 360 343 49 46 21 22 4 5 3 5 881 981
Two or more
281 583 471 637 107 151 51 54 10 20 3 6 918 1,453
storeys
Total 732 1,141 827 983 152 198 63 81 12 19 8 10 1,801 2,436
Flat, Unit or
Apartment:
In a one or two
766 509 503 322 107 94 45 35 6 7 0 0 1,428 968
storey block
In a three storey
98 162 105 188 17 29 6 12 3 0 0 0 226 399
block
In a four or more
12 31 14 51 3 6 0 0 0 0 0 0 31 83
storey block
Attached to a
8 3 8 0 4 0 0 0 0 0 0 0 14 3
house
Total 884 707 624 560 127 132 48 44 8 9 0 0 1,697 1,452
Other dwelling:
Caravan, cabin,
108 66 50 25 9 0 7 3 3 0 3 0 183 93
houseboat
Improvised
home, tent, 11 15 9 13 12 8 4 3 0 0 0 0 35 38
sleepers out
House or flat
attached to a 3 7 3 3 4 0 3 0 0 0 0 0 18 9
shop, office etc.
Total 125 85 67 37 22 8 12 12 11 0 3 0 234 145
Dwelling
structure not 0 60 0 48 0 13 0 20 0 3 0 4 5 146
stated
Total 4,200 4,954 7,389 8,443 2,551 2,869 2,328 2,515 867 972 351 395 17,690 20,143
Source: ABS 2016 Census of Population and Housing Time Series Profile Noosa (S) LGA based on
place of enumeration and excludes visitor only households.
8.3 Dwelling size and household size
Table 21 below looks specifically at Family households over the 2006 – 2016 inter-census decade.
It gives an insight into whether housing is overcrowded or whether there is excess capacity within
the housing stock. Highlighted in red are a few instances of families of three, four, five or six 6 or
more people in smaller homes where the number of occupants per bedroom would exceed two.
However, for the most part the most frequent family size is two people.
Separate houses are most frequently three plus bedrooms and modern houses are most typically
over 275m2 in floor area. Semi-detached housing (such as duplexes are most frequently three
bedroom, followed by two bedrooms. Apartments or units are more frequently two bedrooms.
In 2016 there were 292 families of 3 or more people living in semi-detached homes and 184 living in
apartments.
Over that decade there was an overall increase in family households, however the number of families
living in apartments / units decreased. This correlates with Table 20 above which suggested less
occupied private apartments.
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Table 22 is similar but looks at group households rather than family households. Overall there were
more group households in 2016 than 10 years earlier but most frequently they are households of
two people. Overcrowding does not seem to be a concern in these figures.
Table 21 Dwelling Structure and number of bedrooms by number of persons usually resident for family households 2006
– 2016, Noosa LGA
Number of persons usually resident in family households
Dwelling type
and size
Two Three Four Five Six or more Total
2006 2016 2006 2016 2006 2016 2006 2016 2006 2016 2006 2016
Separate house:
None (includes 9 5 0 3 5 0 0 0 0 0 15 13
bedsitters)
65 85 6 8 6 9 0 5 3 0 86 110
One bedroom
571 609 155 121 69 73 14 16 4 9 809 834
Two bedrooms
2,970 3,228 1,156 1,127 931 834 248 222 65 45 5,367 5,458
Three bedrooms
Four or more 1,760 2,355 844 1,147 1,156 1,411 572 672 266 313 4,591 5,900
bedrooms
Number of bedrooms 64 74 29 27 20 13 0 9 0 9 113 140
not stated
Total 5,450 6,363 2,190 2,436 2,179 2,342 831 927 340 375 10,981 12,448
Semi-detached,
townhouse etc
None (includes 0 3 0 0 0 0 0 0 0 0 0 3
bedsitters)
15 28 0 0 0 0 0 0 0 0 20 28
One bedroom
304 408 49 83 11 23 0 5 0 0 371 512
Two bedrooms
370 399 74 91 32 45 10 15 0 3 491 548
Three bedrooms
Four or more 29 23 20 15 21 14 3 4 3 3 70 57
bedrooms
Number of 10 22 0 3 0 3 0 0 0 0 7 26
bedrooms not stated
Total 734 883 142 188 65 79 12 19 3 6 959 1,179
Flat, Unit or
Apartment:
None (includes
0 3 0 0 0 0 0 0 0 0 0 3
bedsitters)
One bedroom 33 31 0 0 0 0 0 0 0 0 36 28
Two bedrooms 331 304 65 81 16 16 0 4 0 0 418 403
Three bedrooms 160 135 47 40 27 24 8 3 0 0 242 212
Four or more
15 11 5 0 3 0 0 0 0 0 18 14
bedrooms
Number of bedrooms
5 3 3 0 0 0 0 0 0 0 8 3
not stated
Total 540 484 119 127 50 48 8 9 0 0 720 663
Other dwelling:
None (includes
5 6 0 0 0 0 0 0 0 0 11 6
bedsitters)
One bedroom 28 14 0 0 0 0 0 0 0 0 28 17
Two bedrooms 7 5 3 3 6 3 3 0 0 0 17 11
Three bedrooms 10 5 7 0 9 3 5 0 0 0 28 7
Four or more
8 4 5 0 4 3 0 0 4 0 16 11
bedrooms
Number of bedrooms
0 3 0 0 0 0 0 0 0 0 3 5
not stated
Total 59 37 17 3 12 12 11 0 3 0 104 53
Dwelling structure
0 44 0 9 0 20 0 3 0 4 0 78
not stated
Total 6,783 7,807 2,473 2,770 2,304 2,491 860 968 347 394 12,773 14,423
Source: ABS 2016 Census of Population and Housing Time Series Profile Noosa (S) LGA based on
place of enumeration and excludes visitor only households as well as lone person and group
households.
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Table 22 Dwelling Structure and number of bedrooms by number of persons usually resident for group households 2006 -
2016
Number of persons usually resident in group households
Dwelling type
and size
Two Three Four Five Six or more Total
2006 2016 2006 2016 2006 2016 2006 2016 2006 2016 2006 2016
Separate house:
None (includes
0 3 0 0 0 0 0 0 0 0 0 3
bedsitters)
One bedroom 4 8 0 3 0 3 0 0 0 0 4 9
Two bedrooms 82 76 3 5 0 0 0 0 0 0 82 77
Three bedrooms 238 226 29 29 8 6 0 0 0 0 274 259
Four or more
102 128 24 41 14 17 4 4 0 3 150 191
bedrooms
Number of bedrooms
3 14 0 5 0 0 0 0 0 0 3 17
not stated
Total 427 447 51 80 22 24 4 4 3 3 508 563
Semi-detached,
townhouse etc
None (includes
0 0 0 0 0 0 0 0 0 0 0 0
bedsitters)
One bedroom 3 3 0 0 0 0 0 0 0 0 3 4
Two bedrooms 58 62 5 3 0 0 0 0 0 0 62 65
Three bedrooms 31 36 9 6 0 0 0 0 0 0 33 42
Four or more
5 3 0 0 0 0 0 0 0 0 6 3
bedrooms
Number of
3 4 0 0 0 0 0 0 0 0 3 4
bedrooms not stated
Total 95 105 9 8 3 0 0 0 0 0 107 115
Flat, Unit or
Apartment:
None (includes
0 0 0 0 0 0 0 0 0 0 0 0
bedsitters)
One bedroom 0 6 0 0 0 0 0 0 0 0 0 6
Two bedrooms 60 56 5 3 0 0 0 0 0 0 67 61
Three bedrooms 20 17 3 5 0 0 0 0 0 0 24 18
Four or more
0 0 0 0 0 0 0 0 0 0 0 0
bedrooms
Number of bedrooms
0 0 0 0 0 0 0 0 0 0 0 0
not stated
Total 82 79 8 11 0 0 0 0 0 0 92 88
Other dwelling:
None (includes
0 0 0 0 0 0 0 0 0 0 0 0
bedsitters)
One bedroom 0 0 0 0 0 0 0 0 0 0 0 0
Two bedrooms 3 0 0 0 0 0 0 0 0 0 3 0
Three bedrooms 0 0 0 0 0 0 0 0 0 0 0 0
Four or more
0 0 0 0 0 0 0 0 0 0 0 0
bedrooms
Number of bedrooms
0 0 0 0 0 0 0 0 0 0 0 0
not stated
Total 3 0 0 0 0 0 0 0 0 0 5 0
Dwelling structure
0 6 0 3 0 0 0 0 0 0 0 10
not stated
Total 610 635 75 98 30 25 4 4 3 0 714 769
8.4 Housing Tenure
The Census data records dwellings by tenure type. This describes whether a household rents or
owns the dwelling in which they were counted on Census Night 2016, or whether the household
occupies it under another arrangement. The data excludes visitor only households.
In 2016 Noosa Shire reported a considerably higher proportion of dwellings owned outright (39.1%)
when compared to the State (28.5%). This proportion varied throughout the Shire, and not
surprisingly is highest in Noosa Heads and Noosaville where there is a high proportion of older
residents. However, it is also high in Noosa Hinterland. The proportions were lower in the beach side
SA2s, however still above the State figures.
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The proportion of fully owned dwellings has increased over the decade from 2006 to 2016, reflective
of an aging population.
Table 23 Fully owned occupied private dwellings 2016
Area Number of occupied Percentage of
private dwellings fully occupied private
owned dwellings fully owned
Noosa Hinterland 3,146 40.4%
Tewantin 1,543 38.1%
Noosaville 1,530 41.5%
Noosa Heads 739 41.9%
Sunshine Beach 836 33.2%
Peregian Beach – Marcus Beach 516 35.0%
Noosa Shire 7,879 39.1%
Queensland 471,407 28.5%
Source: ABS, Census of Population and Housing, 2016, General Community Profile - G33
The proportion of Noosa housing being paid off through a mortgage of shared equity scheme has
not changed a great deal over the 2006-2016 period. It is slightly lower than the State proportion.
The highest proportion was in Noosa Hinterland. All other SA2s had proportions lower than that of
the State.
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Table 24 Occupied private dwellings being purchased 2016
Area Number of occupied Percentage of
private dwellings being occupied private
purchased dwellings being
purchased
Noosa Hinterland 3,131 40.2%
Tewantin 1,177 29.0%
Noosaville 838 22.7%
Noosa Heads 448 25.4%
Sunshine Beach 823 32.7%
Peregian Beach – Marcus Beach 462 31.3%
Noosa Shire 6,325 31.4%
Queensland 558,439 33.7%
Source: ABS, Census of Population and Housing, 2016, General Community Profile - G33
In terms of the proportion of homes being rented, occupied private dwellings in Noosa Shire were
less likely to be rented, whether through a real estate agent, state housing authority, person not in
the same household, housing co-op/community/church or otherwise. Further, the proportion being
rented dropped by some 15% in the 2006-2016 decade.
Each SA2 has figures lower than the State. Noosa Hinterland has the lowest with just 16.5% of
occupied private dwellings being rented. The beachside SA2s had the highest proportion of dwellings
being rented.
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Table 25 Occupied private dwellings being rented 2016
Area Number of occupied Percentage of
private dwellings being occupied private
rented dwellings being rented
Noosa Hinterland 1,289 16.5%
Tewantin 1,085 26.8%
Noosaville 1,071 29.0%
Noosa Heads 516 29.3%
Sunshine Beach 804 31.9%
Peregian Beach – Marcus Beach 455 30.9%
Noosa Shire 5,087 25.3%
Queensland 566,478 34.2%
Source: ABS, Census of Population and Housing, 2016, General Community Profile - G33
In 2016 there were 324 occupied private dwellings with some other form of tenure such as dwellings
being occupied under a life tenure scheme. This represented 1.6%.
Noosa Council keeps records of whether a rateable property is declared to be the owners’ principal
place of residence or not. Around the time of the 2016 census 16,820 of the 30,153 rateable
residential properties (or 55.78%) were claimed to be a principal place of residence. At July 2021
there were 18,146 properties out of 30,915 (or 58.07%) categorised as principal place of residence.
Noosa is a favoured place for second homes or holiday homes. Some of these are available at least
part of the time for short-term paying guests, and some are just preserved for use by the owners,
their family and friends. They are not typically available for permanent rental accommodation.
During consultation on the new planning scheme many property owners relayed to Council the
reasons they chose not to make their properties available for permanent tenants. These were both
financial and lifestyle reasons. Most of them wanted the flexibility to come stay in the property when
they could but to leverage an income from it at other times.
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9. Recent dwelling approvals
Between 1 January 2017 and 30 June 2021 there were over one thousand building permits issued
for projects that included one or more additional dwellings (including secondary dwellings). The
breakdown of these permits by SA2 is as per Table 26 below. Project values are gained from the
Building Works application form (DA Form 2) which asks: “What is the monetary value of the
proposed building works?” It specifically excludes land cost.
Table 26 Snapshot of new residential buildings January 2017 - June 2021
SA2 Number Comments
of
Permits
Noosa 632 328 of these are for properties in Cooroy including over 100 associated with
Hinterland the dwellings in Palm Lakes.
There were 46 in Pomona; 41 in Cooroibah; 38 in Cooran; 24 at Lake
Macdonald; 22 at Kin Kin; and 22 at Black Mountain. Other localities had
smaller numbers.
4 building permits were for multiple dwellings totalling some 22 units in Kauri
St and Garnet St Cooroy. A further eight permits for duplexes in Cooroy were
also issued
79 building permits specifically acknowledged the inclusion of a secondary
dwelling.
The balance of permits were for detached houses and associated structures.
Houses had an average project cost of $308,057, the lowest being $26,300
and the highest being $3,675,089. Applications were predominantly owners
who had an address within or close to Noosa Shire, until the upper end of
projects. Of the 46 projects valued at over $500,000, 15 owners were from
other areas.
There were a couple of permits issued for cabins and yurts (for visitors)
Tewantin 109 Most permits for houses and associated structures. On average the value of
the building work for the house projects was $476,219, ranging from a low of
$190,000 to a high of $2,982,743. Most Tewantin owners were listed as
having an address in or close to Noosa Shire.
There were 4 permits issued for small numbers of multiple units, these
totalled 13 in Poinciana Avenue and six in Moorindil Street.
One duplex permit was issued.
3 SDA compliant houses were approved to be used as group houses. These
ranged between $481,000 and $572,000 in cost.
23 permits specifically acknowledged the inclusion of a secondary dwelling.
Noosaville 107 This included a new backpacker hostel approved in Mary Street and the
Arcare residential aged care facility
24 new units were approved in Noosa Domain retirement facility
4 other approvals were issued for small number of multiple
units/townhouses, totalling 14 units
20 duplex approval permits were issued
7 permits specifically acknowledged the inclusion of a secondary dwelling.
The rest were domestic projects with the value of new house building works
averaging $779,683. Projects ranged from a low of $100,000 to a high of
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$3,895,361. Most owners were listed as being from within or close to Noosa
Shire, however from projects of a value over $500,000, 29% of owners were
from elsewhere. This included the 3 most expensive projects.
Noosa Heads 97 Most permits for houses and associated structures. These varied from a
value of $145,000 to $4,500,000, with the average $1,100,2456. There was
a higher proportion of owners with a registered address away from Noosa or
the surrounds (overall one quarter of owners), particularly at the higher end
of projects. For projects of more than $500,000 value, 30% of owners were
from other area.
Construction of multiple blocks of units at Parkridge and two developments
at Serenity Close; small number of new dual occupancies and 6 referenced
secondary dwellings.
One instance of two existing units converting to one larger one.
Sunshine 93 Most permits were for houses and associated structures, these had an
Beach average value of $1,151,997, ranging from a low of $250,000 to a high of
$4,500,000. While most of the owners had a listed address of within or close
to Noosa Shire, at the upper end of projects closer to 30% of owners were
from elsewhere. (For example, of the 31 projects listed as over $1,000,000
in value, 10 had owners from elsewhere.
11 permits were issued for duplexes
8 permits specifically acknowledged the inclusion of a secondary dwelling.
Peregian 50 Most permits for houses and associated structures. These had project values
Beach – ranging from $140,000 to $3,031,772, with an average of 800,481.39. Most
Marcus Beach owners had listed addresses of within or close to Noosa Shire however of
the 9 house projects with values over $1,000,000, 4 owners were from
elsewhere.
1 Duplex approval was issued
6 permits specifically acknowledged the inclusion of a secondary dwelling.
The ABS also keeps data on Building Approvals. Queensland Treasury has represented this data
in the following figure. This includes houses as well as other building such as units and duplexes
etc.
Figure 18 Number of residential building approvals in Noosa Shire
Source: ABS 8731.0, Building Approvals, Australia, various editions as depicted in Queensland Government
Statistician’s Office, Queensland Treasury, Queensland Regional Profiles: Time Series Profile for Noosa LGA
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10. Housing Cost and Availability 10.1 Residential Property Sale Prices Australia has seen significant upward change in the cost of residential property over the last two years. The weighted average of the eight capital cities Residential Property Price index for the June quarter 2021 was up 16.7% over the June quarter 2020. It rose 6.7% between the 2021 March quarter and June quarter alone.34 Every state in the country, including cities and regional areas are experiencing increased property prices, attributed to a number of factors including interest rates and tax policy. Coastal destinations attracting tourists, incoming retirees and mobile digital workforce are experiencing more extreme price rise. Queensland Department of Resources, through the Queensland Valuation and Sales (QVAS) database publishes residential dwelling sales data35. This data, shown in Table 27 suggests the median sale price in Noosa LGA in the 12 months ending 31 June 2021 was $900,000, which makes it noticeably higher than other coastal LGAs in South East Queensland. The variation amongst the SA2s of Noosa Shire is quite noticeable with Tewantin having the lowest median sale price of $700,500 while Noosa Heads and Sunshine Beach both having median sale prices of over $1,300,000. Taking Noosa Hinterland as an example, a twenty percent deposit on $780,000 is $156,000. Stamp duty, conveyancing, insurance, moving costs etc are on top of this and collectively make the exercise of home purchase extremely difficult for anybody not already in the property market, especially if they are outlaying rent as they save a deposit. Another significant feature of Table 27 is the total number of dwelling sales within a 12 month period. For Noosa Shire the figure was 2,598 which is quite significant given the 2016 census suggested Noosa Shire had just 20,143 occupied private dwellings. 34 ABS September 2021“Residential Property Price Indexes: Eight Capital Cities” 35 Residential dwelling sales include both new and established dwellings and all reporting periods are based on the contract date and not the settlement date. Attached dwellings include multi-unit dwellings (flats), building units or group titles. Detached dwellings include single unit dwellings or large house sites. Noosa Housing Needs Assessment 2021 Page 79
Section 82
Table 27 Residential dwelling sales 12 months ending 30 June 2021
Area Number of sales Median Sale Price
Detached Attached Total Detached Attached Total
dwelling dwelling dwellings dwelling dwelling dwellings
Noosa LGA 1,632 966 2,598 $950,000 $800,000 $900,000
Noosa 767 47 814 $802,500 $455,000 $780,000
Hinterland
Tewantin 295 56 351 $740,000 $443,500 $700,500
Noosaville 235 320 555 $1,402,500 $642,500 $877,500
Noosa Heads 152 321 473 $1,500,000 $1,110,000 $1,340,000
Sunshine Beach 198 173 371 $1,575,000 $950,000 $1,300,000
Peregian Beach– 99 50 149 $1,270,000 $648,500 $1,155,000
Marcus Beach
Sunshine Coast 7,676 4,414 12,090 $735,637 $495,000 $650,000
LGA
Moreton Bay 9,883 2,943 12,826 $525,000 $355,000 $491,000
LGA
Redland LGA 3,857 958 4,815 $590,000 $430,000 $560,000
Brisbane LGA 18,666 14,316 32,982 $775,000 $460,000 $635,000
Gold Coast LGA 10,306 13,834 24,140 $780,000 $490,000 $612,000
Queensland 102,901 47,365 150,266 $525,000 $430,000 $490,000
The QVAS database also specifically publishes new house and vacant land sales data36. It suggests
that there were just 13 new house sales and 72 residential vacant lot sales in Noosa Shire the 12
months ending 30 June 2021. The median sale prices were higher than those of the State and higher
than other coastal Local Government Areas of South East Queensland, as shown in Table 28 below.
36 Vacant residential land have been defined as vacant, large house sites, vacant urban land and vacant rural
land between 140m2 and 2,500m2. New house and land have been defined as a single unit dwelling or dwelling
large house site on a newly registered block of land between 140m2 and 2,500m2.
Noosa Housing Needs Assessment 2021 Page 80
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Table 28 New house and vacant land sales, 12 months ending 30 June 2021
Area Number of sales Median sale price
New houses Vacant land New houses Vacant land
Noosa LGA 13 72 $1,060,000 $660,000
Sunshine Coast LGA 274 2,000 569,500 290,900
Moreton Bay LGA 509 2,766 499,900 275,000
Redland LGA 144 1,619 648,500 40,000
Brisbane LGA 754 2,214 825,000 400,000
Gold Coast LGA 207 1,233 606,000 315,000
Queensland 3,631 21,763 $500,000 $229,000
Source: Queensland Treasury Regional Profile derived from Department of Resources, Office of the
Valuer-General, Property Sales data.
Generational inequity is often discussed in relation to housing cost. Housing costs have increased
compared to annual incomes making it increasingly more difficult to save a deposit.
There is also a gender disparity given the reported difference in full time average earnings between
adult women and men. According to CoreLogic, based on the average weekly full time earnings for
men and women in Australia, it would take women on this average income an additional 10 months
to save for a 20% deposit on the median dwelling value as at January 2021, compared with the
average full time earnings for men37. Further, given that, at January 2021, women accounted for
67.2% of Australians in part time employment, and only 37.9% of those in full time employment. This
disparity in total average earnings is even greater.
Conversely, interest rates are lower than they have been in the past, more government grants and
assistance packages are available and more dual income families exist than previous generations.
10.2 Mortgage Payments
At census 2016 the median monthly mortgage repayment for Noosa Shire was $1,733, exactly in
line with the State’s figure. Within Noosa Shire the lowest median monthly mortgage repayment was
$1,662 at Noosa Hinterland and the highest was $1,939 at Noosa Heads. Given the difference in
purchase price these monthly costs are not significantly different.
By comparison, the median monthly mortgage repayment in Brisbane City was $2,000, at both the
Gold Coast and Redland City $1,950 and at Sunshine Coast LGA $1,800.
The figures are based on place of usual residence at census time. Therefore, they are derived from
owner occupiers and not property investors who live outside Noosa Shire.
37 CoreLogic (March 2021) Women and Property: State of Play
Noosa Housing Needs Assessment 2021 Page 81
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10.3 Rent
A Report for the Australian Council of Social Service and University of New South Wales Poverty
and Inequality Partnership, by the City Futures Research Centre at UNSW 38 noted that while rents
declined sharply in some capital city inner suburbs at the start of the COVID pandemic, the national
picture has seen a rapid take-off in rents from mid-2020, with annual increases accelerating to over
8% by the third quarter of 20-2021 – far ahead of wage growth and dramatically higher than the
annual rent increase norm over the previous decade. Further, rent inflation in regional Australia
escalated to 12.4% in the year to August 2021, with non-metropolitan increases outpacing capital
cities. The increase in asking rent for regional Queensland from August 2020 to July 2021 was 13%.
The Residential Tenancies Authority (RTA) calculates median weekly rents based on an analysis of
information gathered from new rental bond lodgements in each quarter. The data is collected from
bond lodgement forms and does not take into account condition or age of the property, any inclusions
provided or facilities that may be available.
For smaller dwellings, Noosa’s median rents do not seem that different to the broader Sunshine
Coast or the State, however as dwelling size increases so does the distinction.
While median rents in Noosa Shire have typically been above State average over the last decade
the gap has widened. Figure 19 below runs a comparison of median rents for a three bedroom house
in Noosa Shire compared with the State.
Table 29 Median weekly rent by dwelling type, 12 months ending 30 September 2021
Area 1 bedroom 2 bedroom 3 bedroom 4 bedroom
flat/unit flat/unit house house
Median weekly rents ($)
Noosa Shire 345 500 600 740
Sunshine Coast SA4 330 440 520 620
Queensland 330 400 400 470
Source: Residential Tenancy Authority
38 Pawson, H., Martin, C., Thompson, S., Aminpour, F. (2021) ‘COVID-19: Rental housing and homelessness
policy impacts’ ACOSS/UNSW Poverty and Inequality Partnership Report No. 12, Sydney
Noosa Housing Needs Assessment 2021 Page 82
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Figure 19 Median rent for a 3 bedroom house, Noosa LGA compared to Queensland State
Source: Queensland Government Statistician's Office Regional Profile based on Residential
Tenancies Authority, Rental Bonds data
Queensland Residential Tenancy Authority (RTA) publishes median rent by postcode, on a quarterly
basis, for different types and sizes of dwellings. Where they have less than five new bonds lodged
in a quarter for a given postcode, no median is available. Table 30 to Table 34 below show a selection
of dwellings with June and December quarter data since 2017. This shows that since the publication
of the Briggs & Mortar report there have been some significant increases, showing the number of
new tenancies as low, particularly in hinterland postcodes.
Table 30 Median Weekly Rents for 1 bedroom Flats / Units
Jun Dec Jun Dec Jun Dec Jun Dec Jun Sep
17 17 18 18 19 19 20 20 21 21
Postcode Locality Median Weekly
Rent ($)
4573 Centenary Heights, Coolum 320 320 320 320 330 330 335 340 370 393
Bch, Marcus Bch, Mt Coolum,
Peregian Bch, Pt Arkwright,
Yaroomba
4565 Boreen Pt, Cootharaba, 305 293 305 300 295 300 300 320 320 385
Teewah, Tewantin
4566 Noosaville 360 380 360 480 450
4567 Castaways Bch, Noosa 340 370 370 350 310 420
Heads, Sunrise Bch,
Sunshine Bch
4563 Black Mountain, Carters 245 250
Ridge, Cooroy, Tinbeerwah
4568 Pomona
4569 Cooran
4571 Kin Kin
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Table 31 Median Weekly Rents for 2 bedroom Flats / Units
Jun Dec Jun Dec Jun Dec Jun Dec Jun Sep
17 17 18 18 19 19 20 20 21 21
Postcode Locality Median Weekly Rent ($)
4573 Centenary Heights, Coolum 350 360 370 360 378 410 380 450 465 480
Bch, Marcus Bch, Mt Coolum,
Peregian Bch, Pt Arkwright,
Yaroomba
4565 Boreen Pt, Cootharaba, 373 340 340 350 350 380 375 415 460
Teewah, Tewantin
4566 Noosaville 380 380 420 398 430 423 410 470 480 580
4567 Castaways Bch, Noosa 420 410 400 420 440 450 445 500 560 578
Heads, Sunrise Bch,
Sunshine Bch
4563 Black Mountain, Carters 320 320 338
Ridge, Cooroy, Tinbeerwah
4568 Pomona
4569 Cooran
4571 Kin Kin
Table 32 Median Weekly Rents for 3 bedroom Townhouses
Jun Dec Jun Dec Jun Dec Jun Dec Jun Sep
17 17 18 18 19 19 20 20 21 21
Postcode Locality Median Weekly Rent ($)
4573 Centenary Heights, Coolum 450 460 460 465 475 478 480 570 630 650
Bch, Marcus Bch, Mt Coolum,
Peregian Bch, Pt Arkwright,
Yaroomba
4565 Boreen Pt, Cootharaba,
Teewah, Tewantin
4566 Noosaville 525 550 488 630 535 560 600 750 738 713
4567 Castaways Bch, Noosa 550 635 650 660 570 600 590 750 700 850
Heads, Sunrise Bch,
Sunshine Bch
4563 Black Mountain, Carters
Ridge, Cooroy, Tinbeerwah
4568 Pomona
4569 Cooran
4571 Kin Kin
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Table 33 Median Weekly Rents for 3 bedroom Houses
Jun Dec Jun Dec Jun Dec Jun Dec Jun Sep
17 17 18 18 19 19 20 20 21 21
Postcode Locality Median Weekly Rent ($)
4573 Centenary Heights, Coolum 460 470 475 470 480 485 490 530 623 650
Bch, Marcus Bch, Mt Coolum,
Peregian Bch, Pt Arkwright,
Yaroomba
4565 Boreen Pt, Cootharaba, 470 455 460 480 480 490 488 550 600 580
Teewah, Tewantin
4566 Noosaville 543 500 500 500 600 600 520 563 750 998
4567 Castaways Bch, Noosa 583 550 575 593 600 650 520 850 750 750
Heads, Sunrise Bch,
Sunshine Bch
4563 Black Mountain, Carters 430 450 450 470 410 450 475 500 550 600
Ridge, Cooroy, Tinbeerwah
4568 Pomona 413 380 415 395 450 448 428 500 520
4569 Cooran 355 395 430 390 530
4571 Kin Kin 470
Table 34 Median Weekly Rents for 4 bedroom Houses
Jun Dec Jun Dec Jun Dec Jun Dec Jun Sept
17 17 18 18 19 19 20 20 21 21
Postcode Locality Median Weekly Rent ($)
4573 Centenary Heights, Coolum 530 540 550 550 560 563 550 650 733 760
Bch, Marcus Bch, Mt
Coolum, Peregian Bch, Pt
Arkwright, Yaroomba
4565 Boreen Pt, Cootharaba, 500 550 550 550 550 550 567.5 620 650 700
Teewah, Tewantin
4566 Noosaville 590 693 710 630 710 658 650 835 878 950
4567 Castaways Bch, Noosa 695 683 705 690 750 750 700 802.5 873 950
Heads, Sunrise Bch,
Sunshine Bch
4563 Black Mountain, Carters 490 470 523 518 535 520 500 565 670 700
Ridge, Cooroy, Tinbeerwah
4568 Pomona 525 475 500 500 600
4569 Cooran
4571 Kin Kin
Noosa Housing Needs Assessment 2021 Page 85
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These figures have increased substantially and are particularly high compared to the income of employment in Noosa Shire. As an example at Census 2016 the median total personal income in Noosaville SA2 for workers aged 15 years and over was $41,491 per year (approx. $798 per week). 63.3% of workers were on less than $1,000 per week. Even considering potential wage increase since 2016, this would make $480 for a one bedroom unit unaffordable and a three bedroom house would cost almost the median income. This has considerable implications for one or even two income households. Because of the differences in postcodes and SA2 it becomes harder to make direct comparisons for other localities. ABS data suggest of 5,587 counted households in the 4565 postcode, 2,365 had a total household income of less than $1,000 per week39. It would now be very difficult to find a house without spending at least two thirds of that on weekly rent. 10.4 Private Rental Vacancy Rates Review of the rental housing market throughout the urban areas of Noosa Shire during the first half of 2021 has revealed very low numbers of rental properties available. At any given time, less than 15 properties are advertised for rent through the real estate industry below $500 per week with a high proportion being one bedroom apartments or granny flats. Others properties are advertised privately through social media and online classified sites, however competition is high and properties are taken quickly. In January 2021 REIQ reported the two most popular destinations for interstate migration were the Sunshine Coast and Gold Coast respectively. “Citing liveability, affordability and lifestyle along with economic opportunities, education and an inclusive society, the Sunshine Coast may be drawing big crowds but its rental market hasn’t shifted in months, firmly gripped at 0.3%. Many areas such as …Noosa (0.4% rental vacancies) and Sunrise Beach (0.5%) have continued to tighten marginally over the last three months”.40 More recently REIQ reported41 rental demand levels far outstripping available vacancies across regional Queensland, with a rate of 0.4% recorded across Gympie and the Sunshine Coast. Domain also reports a 0.4% vacancy rate for the June quarter across the Sunshine Coast.42 The surge in demand reportedly fuelled by interstate migration and returning expats as a result of Covid- 19 and lockdowns in southern capitals. SQM Research shows a dramatic fall in rental vacancies across the Sunshine Coast through 2020 with a slight increase in 2021. At the time Briggs & Mortar were doing the previous Housing Needs Assessment (2016-2017) there was a vacancy rate of around 2% or more. 39 2016 Census of Population and Housing General Community Profile for postcode 4565 40 REIQ 18 January 2021 41 REIQ 19 April 2021 42 Sarah Webb Domain Media 12 July 2021 Noosa Housing Needs Assessment 2021 Page 86
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Figure 20 Residential Vacancy rates for Sunshine Coast Region Source: SQM Research Pty Ltd 2021 SQM Research data can also be broken down by postcode. The following provide a selection of postcodes of relevance to Noosa Shire with review of the period since 2016. Not all postcodes are shown as some have quite low levels of vacancy. Further, Peregian Beach and Marcus Beach share a postcode with areas outside Noosa Shire so have not been included. The 4568 postcode covers Pomona and surrounds including Pinbarren and Federal. The following figure show numbers of vacancies are low with no more than half a dozen rentals available at a time. Since May 2020 there has been no more than one or two vacancies if any. Figure 21 Residential Vacancy Rate 4568 Postcode Source: SQM Research Pty Ltd 2021 The 4563 postcode covers Cooroy and surrounds including Lake Macdonald, Black Mountain, Tinbeerwah and Carter’s Ridge. The figure below indicates a high level of rental vacancy during Noosa Housing Needs Assessment 2021 Page 87
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2017 to 2019. Figures rose and fell until a low point in October 2020 with 0.1% vacancy. It got up to 8 or 9 vacancies earlier in 2021 but has again dropped to 0.1% by September. Figure 22 Residential Vacancy Rates 4563 postcode Source: SQM Research Pty Ltd 2021 The 4565 postcode covers Tewantin and Boreen Point as well as Noosa North Shore, Cooroibah, Cootharaba and Ringtail Creek. From 2016 to 2019 there was between 15 and 30 rental vacancies at any time with peaks up to 44. In April 2020 there was an increase in vacancy rate from 1.5% to 2.6% showing COVID19 lockdowns had some immediate effect. Since then however, there has been a sharp fall in vacancy rates through mid 2020 hovering between 0.2% and 0.5% for close to a year. Figure 23 Residential Vacancy Rate 4565 postcode Source: SQM Research Pty Ltd 2021 The 4566 postcode covers Noosaville. A trend of lower vacancy rates correlating with Christmas each year suggests an impact of tourism and shift of rental properties into the short-term accommodation market. However, in April 2020, when international and domestic borders were closed due to Covid-19, rental vacancy rates peak at 5.3% suggesting a temporary shift of short- term accommodation properties into the permanent rental market. Vacancy rates then dropped sharply to lows of 0.1% in September and November 2020 with a slight rise in February and March 2021 then back to 0.2% in June 2021. Noosa Housing Needs Assessment 2021 Page 88
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Figure 24 Residential Vacancy Rate 4566 postcode Source: SQM Research Pty Ltd 2021 The 4567 postcode covers Noosa Heads, Sunshine Beach, Sunrise Beach and Castaways Beach. It shows quite regular dips and low vacancy rates every November-December with vacancy rates higher in the middle of each year. This postcode was most affected by the decrease in tourist number in the period of March-May 2020 when the vacancy rate jumped to 6.8% (116 vacancies) suggesting the temporary shift or properties from short-term rental to permanent rental. The vacancy rate dropped sharply over the next couple of months and in the 12 months from July 2020 vacancy rates ranged between 1.3% and 0.4%, sitting at 0.6% in June 2021. Figure 25 Residential Vacancy Rates 4567 postcode Source: SQM Research Pty Ltd 2021 AHURI has published findings of research43 that analysed the change in Airbnb property listings pre- COVID19 and during COVID19. Their project found it was clear that the withdrawal of homes from the short term rental platform contributed to an easing of vacancy rates in both Sydney and Hobart flow on impacts for rents. The release of some short term accommodation into the permanent rental and informal rental market increased supply but not demonstrably at the affordable end of the market. In tight regional markets such as Shoalhaven on the NSW South Coast, rental availability 43 Buckle, C., Gurran, N., Phibbs, P., Harris, P., Lea, T. and Shrivastava, R. (2020) Marginal housing during COVID-19, AHURI Final Report No. 348, Australian Housing and Urban Research Institute Limited, Melbourne. Noosa Housing Needs Assessment 2021 Page 89
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remained severely restricted. In Shoalhaven, permanent rental vacancy rates were at an all-time low
but around 20% of the housing stock was available as residential tourist accommodation. AHURI
went to the extent of saying in their final remarks:
In areas with high concentrations of (short term rental) STR Airbnb-style listings, even small
reductions in the number of listings have generated benefits to the permanent rental market
including significant reductions in rent. These benefits should be encouraged through
stronger mechanisms to preserve permanent rental housing in high demand markets. At the
same time, there may be opportunities to better use residential tourist accommodation during
emergency periods. Better understanding and regulating the STR sector would support more
flexible and efficient use of the entire housing stock.
10.5 Bond lodgements
The Regional Profile for Noosa Shire, suggests the RTA had the following numbers of bond
lodgements for the 12 months ending 30 June 2021:
1 bedroom flat/unit – 176
2 bedroom flat/unit – 328
3 bedroom house – 388
4 bedroom house – 410
According to RTA quarterly data, the RTA held bonds for properties in Noosa Shire over the last
couple of years, as per Table 35 below. There has been much discussion about the impact of
COVID19 on the availability of rental accommodation in Noosa Shire. What this data shows is that
from early 2020 there was actually an increase of RTA bonds. When international borders and some
state borders closed there were investors who transitioned properties from holiday letting to long
term tenancies so the quantum of rental accommodation actually increased for a period. From late
2020 it has been dropping again, but not significantly below the levels of 2019. In combination with
the vacancy rates, this means there is still a significant number of properties being rented, however
competition is much stronger than it once was, largely a result of increased interstate migration.
Table 35 Bonds held by RTA at a point in time
Type of Number Number Number Number Number Number Number Number Number
property/ 30 June 30 Sept 31 Dec 31 30 June 30 Sept 31 Dec 31 30 June
tenancy 2019 2019 2019 March 2020 2020 2020 March 2021
2020 2021
House 2,493 2,475 2,517 2,500 2,512 2,523 2,473 2,476 2,432
Townhouse/semi 371 375 371 361 401 413 397 397 394
-detached
(including
duplexes)
Flat/unit 1,285 1,273 1,264 1,271 1,325 1,365 1,340 1,325 1,294
Movable dwelling 4 4 4 4 4 4 4 4 4
Rooming 6 4 3 5 2 2 3 7 9
accommodation
Other 4 4 4 4 4 4 4 4 4
Noosa Housing Needs Assessment 2021 Page 90
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Total 4,163 4,135 4,163 4,145 4,248 4,311 4,221 4,213 4,137
In the 12 months ending 30 June 2021 the Residential Tenancies Authority, Rental Bonds data
suggests there were 176 bond lodgements for one bedroom flats or units in Noosa Shire; 328 for
two bedroom flats or units; 388 for three bedroom houses; and 410 for four bedroom houses. Noosa
Hinterland and Tewantin had the highest numbers of lodgements for 3 and 4 bedroom houses.
Noosaville had the highest number for 1 or 2 bedroom units, followed by Sunshine Beach.
10.6 Competitive rental market
Local property managers suggest it is a full mix of housing types that tenants are looking for:
• Houses or apartments big enough for families (3 – 4 bedrooms);
• Single level living for older people;
• Small affordable flats; or
• Anything at all in the case of new arrivals from interstate.
Since mid-2020 there has been unprecedented demand for rental properties. Rental prices have
increased to levels that are not sustainable on local incomes, particularly single person wages.
Property managers suggest the Residential Tenancy Authority favours tenant rights over investor
rights, making owning an investment property for permanent rental an unattractive proposition for an
investor. Recently, many investors are taking advantage of a strong sales market and selling
investment properties. In the current market, evidence shows purchasers are more likely to be owner
occupiers.
Where investors are purchasing, they want to recoup the high purchase price by maximising rental
return. This has resulted in long term tenants being displaced as properties are short term let and
when rental prices increase significantly with limited, if any, options available locally to relocate to.
Properties under $600 per week are particularly lacking, with the exception of very basic properties.
Makeshift flats built under or attached to a house are rarely managed through a property manager
and tenants will generally put up with non-compliant safety elements in return for a home.
In a competitive rental market landlords can be more particular in which tenants they choose. Well-
funded couples or small families, without pets44, in professional or digital employment are more likely
to obtain a lease agreement over large families, hospitality workers, groups of single people. In
general, tenants who cannot show a good rental history will particularly struggle.
AHURI has recently published findings on discrimination effects in private rental housing45. It states
there is a nebulous distinction between discrimination and discretion, and discrimination occurs in
both subtle and overt ways across the rental process. It identifies a profound power imbalance
between landlords and tenants and suggests that a growing number of tenants are in share housing
or informal tenancies without protection of formal rental agreements. Discrimination by socio-
economic status is most common but discrimination occurs by other social characteristics such as
age, gender, family status, race, disability, education, employment, sexuality and a myriad of other
factors.
44 The keeping of animals is a matter specifically addressed in proposed Qld rental housing reform and it will
become harder for landlords to prohibit pets.
45 Maalsen, S., Wolifson, P., Rogers, D., Nelson, J. and Buckle, C. (Sept 2021) Understanding discrimination
effects in private rental housing, AHURI Final Report No. 363, Australian Housing and Urban Research
Institute Limited, Melbourne.
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11. Social Housing 11.1 Broader Context The provision of social housing is the responsibility of the Queensland Government, however Governments are now partnering with Local Government, community providers and the development industry to try and tackle this complex problem. Social housing comprises public housing and community housing. Public housing is funded and managed by the State Government; and community housing is funded by either the Australian or the State Government and managed by the not-for-profit sector. 11.1.1 National context According to the Australian Institute of Health and Welfare, in 2019–20, just over 800,000 Australians lived in social housing in over 436,000 dwellings across the country. The majority (69%) of social housing dwellings were public housing stock and community housing (24%). State owned and managed Indigenous housing and Indigenous community housing made up the rest. Commonwealth Rent Assistance was provided to just over 1.7 million at the end of June 2020. At a national level, key characteristics of social housing households are summarised below46: • almost two-thirds (62%) of main tenants were female, with 37% male • main tenants aged 55–59 were the largest 5 year age group (11%) • around 14% of main tenants were aged 75 or older • 15% included an Indigenous member • 35% included a tenant with disability • most households comprised single adults (51%) • 95% of households had a low income status The National Housing and Homelessness Agreement (NHHA) commenced on 1 July 2018 and provides annual funding to states and territories to improve Australians’ access to secure and affordable housing across the housing spectrum. A portion is set aside for homelessness services. Under the NHHA, to receive funding, state and territory governments are required to have publicly available housing and homelessness strategies and contribute to improved data collection and reporting. The housing strategies must address the NHHA housing priority policy areas relevant to the state or territory. The housing priority policy areas include: • affordable housing, • social housing, • encouraging growth and supporting the viability of the community housing sector, • tenancy reform, • home ownership and • planning and zoning reform initiatives. The homelessness strategies must address the NHHA priority cohorts, and outline reforms or initiatives that reduce the incidence of homelessness. Priority homelessness cohorts include: • women and children affected by family and domestic violence, • children and young people, • Indigenous Australians, • people experiencing repeat homelessness, 46 Australian Institute of Health and Welfare (30 June 2021) Housing Assistance in Australia Noosa Housing Needs Assessment 2021 Page 92
Section 95
• people exiting from care or institutions into homelessness and
• older people.
11.1.2 State Context
In 2020 there were 71,424 social housing dwellings in Queensland with 132,999 occupants
throughout 2019-20. Most of the social housing dwellings met the standard for occupancy
requirements however 8,760 were considered to be underutilised and 3,090 were considered to be
overcrowded.
As of June 2021, amidst rising house prices, there were 27,933 applications for Queensland public
housing, amounting to 50,301 people.
11.2 Social Housing in Noosa Shire
11.2.1 Existing public housing stock
Data on household/tenancies in government owned and managed social rental housing at 30 June
2021 suggests there were 392 tenancies in public housing in Noosa Shire. Of those:
• 200 were in the 4565 postcode (Tewantin);
• 90 were in the 4567 postcode (predominantly Sunrise Beach and Noosa Heads);
• 52 were in the 4563 postcode (Cooroy);
• 34 were in the 4566 postcode (Noosaville); and
• the balance were scattered including some at Cooran and at the southern end of the coastal
communities.
Of the 392 listed tenancies:
• 137 were one bedroom dwellings;
• 71 had two bedrooms;
• 143 had three bedrooms
• 36 had four bedrooms; and
• 5 had five bedrooms
Of the 392 listed tenancies:
• 219 (55.8%) were sole person households, at least 158 of whom were listed as a single person
over 55 years.
• 95 households had two occupants, of which:
o 21 households were listed as a couple over 55 years
o 57 households were a single parent with one child
• 42 households had three occupants, of which:
o 28 were single parents with 2 children
o 10 were couples with one child
• 22 households had 4 occupants, 13 of which were single parents with children
• 8 households had 5 occupants;
• 6 households had 6 or more occupants, the largest household being a family of nine.
• 188 households included at least one member with a disability.
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Of the 392 dwellings, 187 (47.82%) are considered large dwellings, in that they contain three or more
bedrooms. However 79.5% of tenancies were households of one or two people suggesting a
mismatch between dwelling size and number of bedrooms and occupancy.
302 of the tenancies were considered to be neither overcrowded nor under occupied47, however 73
were listed as under occupied having at least 2 spare bedrooms. 17 were considered to be
overcrowded. There were 43 instances of a sole person in a 3 or even 4 bedroom dwelling.
The data also suggests that 98 of the tenancies had commenced at least 20 years earlier. A further
108 tenancies commenced between 10 and 20 years earlier. Just 23 tenancies commenced in the
12 months to 30 June 2021. This is of concern, suggesting public housing tenants are not quickly or
easily transitioning out of public housing into the private rental market or into smaller public housing
types suited to changing household sizes. Once secured, public housing is often considered a home
for life, regardless of changes to household occupancy or circumstances. Hence without a noticeable
increase in supply, wait lists will continue to increase. This forms an argument for older, under-
occupied larger social housing stock to be redeveloped for a greater number of smaller dwellings.
The State’s Social housing maintenance and modification expenditure data suggests for the 2020-
21 financial year $1,469,401 was spent on modifications and maintenance of the social housing
stock in Noosa Shire. This did not include acquisition of any new assets.
Table 36 presents data from the Department of Housing and Public Works Housing Profile. The June
2020 figures differ slightly from the June 2021 figures on the previous page, in part reflecting
differences in postcode distribution versus SA2 distribution and in part because they include some
community housing (in addition to public housing). As an example 11 Tewantin tenancies included
below are community housing.
Table 36 Social housing tenancies by number of bedrooms in the dwelling 30 June 2020
SA2 Tenancies by number of bedrooms in the dwelling Total
1 bedroom 2 bedrooms 3 bedrooms 4 bedrooms 5 or more
bedrooms
number % number % number % number % number % number
Noosa Hinterland 6 10.2 11 18.6 33 55.9 8 13.6 1 1.7 59
Tewantin 95 44.8 12 5.7 78 36.8 24 11.3 3 1.4 212
Noosaville 9 26.5 15 44.1 8 23.5 2 5.9 0 0 34
Noosa Heads 19 67.9 2 7.1 7 25.0 0 0 0 0 28
Sunshine Beach 11 17.2 29 45.3 22 34.4 2 3.1 0 0 64
Peregian Beach – 0 0 0 0 1 33.3 2 66.7 0 0 3
Marcus Beach
TOTALS 140 69 149 38 4 400
11.2.2 Wait list for social housing
Table 37 is a summary of the Social Housing Register at 30 June 2021, as sourced through
Queensland Government Open Data Portal. 61 entries (applications) accounted for 128 people. 31
of these applications were flagged as being at risk of homelessness.
47 Just one spare bedroom does not qualify it as under occupied
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54% of applicants only required one bedroom and 13.1% required two.
Of the 61 entries on the register, 16 applications had been received in the 12 months to 30 June
2021, had been received in the preceding 12 months and 28 were older applications, the oldest of
which dated back to 2003.
Table 37 Social Housing Register for Noosa Shire at 30 June 2021
Household Type Total Indigenous Disability
application application
Households
Single Person <55 years 20 3 14
Single Person Over 55 15 1 15
Sub-Total - Single 35 (57.4%) 7 29
Couple Only <55 years 0 0 0
Couple Only Over 55 0 0 0
Sub-Total – Couple Only 0 0 0
Couple, 1 Child 1 0 0
Couple, 2 Children 1 0 1
Couple, >2 Children 0 0 0
Sub-Total – Couple with Children 2 (3.3%) 0 1
Single Parent, 1 Child 3 0 3
Single Parent, 2 Children 6 1 4
Single Parent, >2 Children 11 3 2
Sub-Total – Single Parent 22 (36.0%) 4 9
Other 4 1 3
Total 61 9 42
AHURI has made the point that having a very low income alone is rarely enough to access social
housing. In a high demand, low supply environment, low income eligibility almost always needs to
be coupled with other complex needs, including disability, poor physical or mental health, family
violence, exiting institutions or being homeless or at risk of homelessness.48
Applications on the Social Housing register are assessed to determine their level of need and relative
priority for vacancies. Table 38 shows that in each SA2, for which data was available, over half of
the applications were assessed as being in very high need at 30 June 2020.
48 Muir, K., Powell, A., Flanagan, K., Stone, W., Tually, S., Faulkner, D., Hartley, C., and Pawson, H. (2020) ‘A
pathway to where?’ Inquiry into understanding and reimagining social housing pathways, AHURI Final Report
No. 332, Australian Housing and Urban Research Institute Limited, Melbourne.
Noosa Housing Needs Assessment 2021 Page 95
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Table 38 Housing Register by segment of need 30 June 2020
SA2 Segment of need Total
applications
Very high High Moderate Low
Number % Number % Number % Number % Number
Noosa Hinterland 18 57.0 9 28.0 5 14.5 - 0.5 31
Tewantin 38 56.6 20 29.6 9 13.5 - 0.2 67
Noosaville 47 59.0 21 25,8 12 15.0 - 0.2 80
Noosa Heads Not available
Sunshine Beach 16 54.5 6 20.1 8 25.4 - 0 30
Peregian Beach - Marcus Not available
Beach
Queensland 14,698 56.9 6,116 23.7 4,438 17.2 601 2.3 25,853
Source: Department of Housing and Public Works 49
Beyond the formal waiting list there are many local residents seeking assistance with temporary or
permanent housing. Charities, service providers, Council staff and Councillors, local members and
the other groups and individuals within the communities are frequently called on to assist. Accurate
numbers of people in need are very difficult to establish.
11.3 Community Housing, Transitional Housing, and Emergency Housing
There is a limited stock of community housing, transitional and emergency housing in Noosa Shire
and there has not been a significant change since the Briggs & Mortar Housing Needs Assessment
was prepared in 2017. Compared to other coastal local government areas in SEQ where 12% - 17%
of Social Housing is Community Housing, just 4.5% is in Noosa Shire50.
The State has taken a small number of head leases and arranging other emergency accommodation
through hostels etc.
In the 2020-2021 financial year there were no allocations made to social housing in Noosa Shire
delivered by registered community housing providers. In the 2019-2020 financial year there had
been four allocations, after having been none in either 2018-2019 or 2017-18 and just one in 2016-
17.
11.3.1 Coast2Bay Housing Group
In July 2021 the only Tier 1 registered community housing provider operating in Noosa Shire is
Coast2Bay Housing Group (C2B), an independent, not-for-profit company providing housing
throughout the Sunshine Coast, Noosa, Moreton Bay, Redcliffe and Gympie regions.
C2B have a number of Housing Assistance Programs, including:
49 Note: The Department had a major system change from October 2019 which lead to changes to how the
Housing register was calculated. Prior to October 2019 the Housing Register was calculated based on the
count of the first waitlist area preference, however from October 2019, counts of applications are weighted
based on all listed waitlist areas. For example an application with five listed waitlist areas will have a weighting
of 0.2 for each waitlist area.
50 As at 30 June 2020, according to Department of Housing and Public Works
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The text continues on section 99.