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MCU22/0051 APPLICATION FOR MATERIAL CHANGE OF USE HARDWARE & TRADE SUPPLIES AT 178 EUMUNDI NOOSA ROAD, NOOSAVILLE (Referred from Planning & Environment Committee dated 10 October 2023 - Item 5.2). · ATTACHMENT 2 – ACTING COORDINATOR PLANNING REPORT
ATTACHMENT 2 – (MCU22/0051) – ACTING COORDINATOR PLANNING REPORT REPORT 1. PROPOSAL This application seeks approval to establish a hardware and trade supplies yard on a vacant area to the north of the existing Bunnings Warehouse at Noosaville. The applicant advises the trade yard will provide for timber and trade supplies primarily to professional builders and trades customers, rather than being targeted to retail customers, and is expected to operate independently of the existing bunnings store on the southern portion of the site. The applicant proposes no changes to the existing Bunnings Warehouse store which has an area of 7,592m2. The proposed built form will comprise 2 levels, set into the site’s slope with parking for 57 cars provided in an under croft level beneath the enclosed trade yard for ‘walk in’ customers. A short term parking area (6 light loading bays) for customers collecting large quantities or bulky items is also proposed to the building’s rear to enable customers to load from the upper level of the building. A separate entry and exit are proposed to and from Gateway Drive. The proposed trade yard will have a gross floor area of 1087m2 and has been designed along a similar theme to the existing bunnings store, with concrete panels, and upper and lower levels distinguishable through the white and green colour scheme. The proposed building comprises 2 storeys and is 12.125 metres in height measured to the roof pitch. The trade yard is proposed to operate Monday to Sunday, 6am to 6pm. Figure 1 – Locality
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Figure 4 – Elevations & Section Plans 2. SITE DETAILS 2.1. Background A development approval to Reconfigure 1 lot into 2 lots (REC14/0005) was issued on 4 July 2014. An application to extend the currency period of this approval was approved on 27 September 2018 extending the currency period to 25 September 2020. An application to further extend the currency period was approved on 18 September 2020 to 25 March 2023, which included the first 6 month extension for an applicable event under section 275R (applicable event – Covid 19) of the Planning Act 2016. This ROL approval remains current due to the further Covid extensions (18 months) and if enacted, would permit the proposed bulk trade store to be located on a separate lot to the existing Bunnings store. Figure 5 provides a plan of the approved subdivision layout. A pre-lodgement meeting was held with the applicant regarding the proposed bulk trade store. At this meeting concerns were raised that the proposal constituted an expansion of the existing Bunnings store and an Other Change - impact assessable application, ought to be lodged. A number of design requirements were also discussed including, car parking, building and landscape setbacks, building height, building articulation and finishes. These issues as well as stormwater were similarly raised in the information request to the applicant.
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Figure 5 – Approved Reconfiguring a Lot Plan 2.2. Site Description The site has an area of 2.6635ha and is zoned Medium Impact Industry. The bulk trade yard building is located on the northern portion of the site, which is vegetated, though notably this vegetation is not mapped by the planning scheme’s Biodiversity, waterways and wetlands overlay, nor the State’s Vegetation mapping. 2.3. Surrounding Land Uses The site is located in an industrial area with the existing Bunnings Warehouse store fronting Gateway Drive and Eumundi Noosa Road which is part of the major road network. Land in the area has been developed for a range of uses, consistent with the planning scheme’s zoning pattern at the time, including industrial uses, warehouses, service industries, office works, gym, self- storage and a commercial car wash. The site directly to the north of the site currently contains two industrial buildings that are accessed off Vision Court. 3. ASSESSMENT 3.1. Instruments for Statutory Assessment Under the Planning Act 2016 the application must be assessed against each of the following statutory planning instruments to the extent they are relevant to the development: • State Planning Policy; • South East Queensland Regional Plan 2017; • Planning Regulation 2017; • Noosa Plan 2020.
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3.2. State and Other Statutory Instruments
State Planning Policy
Noosa Plan 2020 is generally consistent with the State Planning Policy July 2017 (SPP) and the
SPP raises no further issues relevant to the proposed development.
South East Queensland (SEQ) Regional Plan 2017
The site is located within the Urban Footprint of the SEQ Regional Plan. The proposal is consistent
with the regional policies of the SEQ Regional Plan.
Planning Regulation 2017
The following assessment benchmark from the Planning Regulation 2017 applies to the
application:
• SEQ Development Area
The proposal is for urban activity within the Urban Footprint and is consistent with the assessment
benchmark contained in the Planning Regulation 2017 for the SEQ Region.
3.3. Statutory Instruments – Planning Scheme
The site is located in Noosaville and is zoned Medium Impact Industry. The proposed use is
defined as Hardware and trade supplies and is required to follow a code assessable application
process. Accordingly, the application must be assessed against each of the following codes to the
extent they are relevant to the development:
• Noosaville Local Plan Code;
• Medim Impact Industry Zone Code;
• Business Activities Code
• Works Codes
• Acid Sulfate Soils Overlay Code
• Landslide Hazard Overlay Code
• Regional Infrastructure Overlay Code
3.3.1 Local Plan Code
The site is located within the Noosaville Local Plan, and the following overall and performance
outcomes are most applicable to the proposed development.
(e) Development design and siting responds to the relatively flat topography of Noosaville by
creating visual interest and differentiation in built form through design and the application of:
i. a range of textures, colours, styles and finishes;
ii. a range of architectural elements within the context of a sub-tropical architectural
theme;
iii. varied roof heights, that cumulatively make a positive contribution to an interesting
skyline;
iv. varied setbacks which create opportunities for both landscaping and design variety;
and
v. retention of mature trees and the provision of new landscaping which create attractive
spaces between buildings.
(o) Development in the Low Impact Industry zone and the Medium Impact Industry zone
accommodates a broad range of industry and business uses, avoiding negative impacts on
the amenity of nearby residential areas.
(p) Activities in industry zones provide important services and products to the community and
provide a range of employment types.
PO15
Development in the Low Impact Industry zone and the Medium Impact Industry zone:
a) provides a range of enterprises that contribute to the economic diversity of the Shire and local
employment options;
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b) provides important industries and service-related functions to the whole of Noosa Shire but
particularly the coastal area;
c) offers a range and diversity of employment types;
d) does not accommodate uses better located in a centre zone
e) does not detract from the safe function or amenity of Eumundi Noosa Road, Walter Hay Drive
or Eenie Creek Road; and
f) does not accommodate uses that would harm the environment, including Eenie Creek, Lake
Doonella and Lake Weyba, through excessive pollutants.
The proposed use is industrial in nature, providing bulk quantities of construction material for the
construction industry requiring an industrial scale building. The proposed use is not expected to
generate fumes, odour or excessive noise beyond vehicle movements and loading/unloading of
goods, operating predominantly within the building and is well separated from the residential area
to the west. Some further design elements though are needed to create further visual interest to
the street, with the building presentation relatively ‘bland’ comparable to the existing Bunnings
store building.
3.3.2 Zone Code
The site is zoned Medium Impact Industry and is located outside the Gateway Drive West Makers
Precinct under the Noosa Plan. The following overall outcomes from the Medium Impact Industry
Zone Code are most applicable to the proposal:
(a) development facilitates the efficient use of land for medium impact industries and
supporting ancillary uses;
(e) new uses are located, designed and managed to be compatible with surrounding uses and
development;
(f) retail sales more appropriately located in business centres, such as shops, showrooms and
retail-based hardware supplies are avoided, except on land fronting Eumundi Noosa Road
or Eenie Creek Service Road Noosaville where showrooms may locate;
(k) buildings are well designed, safe and visually attractive;
(l) development is low rise building and does not present bulky to the street frontages;
(n) Building setbacks incorporate attractive landscaped areas to road frontages with greater
landscape setbacks provided to Eumundi Noosa Road;
The trade yard is consistent with the intent of the zone for industrial uses to locate, with the
applicant advising that no changes are proposed to the Bunnings Warehouse with the store
continuing to operate in accordance with the original approval. The applicant further advises that
in this regard Bunnings Warehouse stores and Bunnings Trade stores are targeted at different
markets/different customer groups and the goods and services are carefully tailored accordingly.
The two types of stores are noted as having a different external appearance and signage with the
trade store design being trade focused. Each store type provides a ‘one-stop shop’ to ensure a
trade customer does not also have to visit a warehouse store and product lines that are likely to
be required by both retail and trade customers are therefore duplicated across both stores.
Ordinarily trade centres are located separately from the retail warehouses, whereas the Noosaville
site will be an exception in that land which happens to be available adjoins the retail warehouse.
The above aspects are considered an important consideration of assessment given that Council
in approving the original Bunnings store, found that the store, while containing a significant retail
component and nursery, also included a significant hardware component and timber sales area
which was consistent with the industrial zoning of the site. The proposed trade store is considered
to provide an industrial use consistent with the intent of the zone.
The following table provides an assessment of the proposal against the key acceptable outcomes
for built form for the Medium Impact Industry zone.
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Criteria Planning Scheme Proposal Complies
Building height
• storeys 2 storeys max 2 storeys
• metres 10 metres 12.12 metres X
Site cover/Gross Floor Area Of a compatible scale with Comparable scale
surrounding development with surrounding
buildings
Boundary setbacks
• Frontage 6 metres min 9-11 metres
• Side 0 metres min 7.2 metres
Articulation, materials & Well articulated Limited X
finishes articulation, use of
Mix of external building
materials, variation
materials
in roof form, with
Varied Roof Form colours reflective
Colours are muted of the Bunnings
environmental tones branding
Landscaped open space 15% of the site, with a 15.7% and 60%
minimum of 60% forward of (inclusive of
the building line biodetention
Landscaping Setbacks basin)
6 metres min
9-12.5 metres
Carparking 22 min 57 covered
6 light loading bays
Bicycle Spaces 12 bicycle spaces 2 bicycle spaces X
End of Trip Facilities* 1 locker per 2 bicycle spaces Nil X
and;
*(required only where 5 +
spaces are required) 1 shower cubicle with ancillary Nil X
change room per 10 bicycle
spaces
The table demonstrates that the proposal meets the key acceptable outcomes, apart from building
height, articulation, materials and finishes and bicycle spaces and end of trip facilities. These
aspects are further discussed below.
Building Height
Performance Outcome Acceptable Outcome
PO8
Buildings and other structures— AO8.1
a) are low rise and have a visual bulk and architectural Buildings and structures are no more than 10 metres in
scale consistent with structures on adjoining and building height..
nearby land;
b) have a maximum building height of two storeys; AO8.2
Where excavation is required, the maximum portion of
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c) do not visually dominate the street or surrounding the exposed external façade of the building cannot
spaces; exceed 10 metres in building height..
d) preserve the amenity of surrounding residential
development including privacy, views and access to
sunlight; and
e) respond to the topography of the site and minimise
cut and fill where on a sloping site; and
f) are well articulated with strong horizontal and
vertical elements to provide interest to the street.
The proposed building exceeds 10 metres in building height, being 12.12 metres at the roof pitch.
The applicant submits that the proposal meets PO8 as:
• The subject site is located in a medium impact industry area and adjoins lots that are within the
Venture Drive Precinct, which promotes medium scale industrial land uses. Uses of this nature
typically require large, bulkier built form to accommodate industrial activities.
• Previously the design incorporated parapet walls that extended up beyond roof edges. This
concealed the roof form. The design has been revised to introduce eaves, and a pitched roof
is now visible. The effect of this twofold: -
- The revised design is now consistent in form with the surrounding development, including
with the form of the development which immediately adjoins at 11 to 13 Vision Court.
- This has also reduced the height of the building at the northern and southern elevations
and reduces the apparent mass and bulk of the building when viewed from the street.
• The proposed development is in context of the development at 11 to 13 Vision Court. This
adjoining development is now complete and operational. With the introduction of eaves and a
pitched roof to the proposal, building height is consistent with that of the existing adjoining
development. A streetscape elevation is provided below.
•
Figure 6 – Applicant’s streetscape elevation
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• Front setback is now between 9m to 12m from the street frontage (not including the land
dedication for road reserve widening). This is up to double the minimum 6m setback sought by
planning scheme acceptable outcomes.
• To further soften appearance of the development from the street, the increased front setback
will incorporate a landscape buffer to the Gateway Drive frontage. The buffer will be ‘three
tiered’ and consist of a variety of species including canopy trees, feature shrubs and ground
covers. This approach will ensure the proposed building is screened by vegetation from
Gateway Drive which will further contribute to reducing any potential visual dominance.
• Articulation will be provided by demarcating the upper and lower levels through paint colour.
Upper level will be painted in Bunnings traditional green colour. Lower level will be white.
Grooves in and between the concrete panels will be expressed to provided finer level detail,
texture and variation.
Buildings in the area range in height as follows:
• Office Works – opposite the site – 10 metres
• Existing Bunnings Store - 12 metres from natural ground level and 9.5m from finished ground
level
• 11 to 13 Vision Court - conditioned to 10 metres.
• Gateway Drive frontage buildings - 10 metres or less in height.
The proposed building façade to Gateway Drive exceeds the height of the buildings in the
surrounding area, but is considered to be in context with development in the area as partly
illustraded in figure 6 above.
The site generally sits lower than 11-13 Vision Court and the existing Bunnings Store noting that
significant earthworks including filling and excavation and ramping were undertaken to develop
these surrounding sites. The proposed building is to be set into the site, with a wide landscape
setback area available to street to undertake planting that will assist it in integrating with the
existing streetscape. The proposed height is considered acceptable.
Figure 7 – Frontage of site and adjoining development accessed off Vision Court
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Articulation, materials & finishes
Performance Outcome Acceptable Outcome
PO11
AO11.1
Buildings are designed and sited to provide visual
Development provides interest to the street with a
interest and amenity by—
well-articulated facade, a mix of
external building materials and a varied roof form.
a) providing well-articulated buildings with strong
horizontal and vertical design; elements to AO11.2
provide interest to the street; Buildings visible from the street are articulated and
b) using a variety of external building materials for use a mix of materials and appropriate design
external walls where such walls are visible from techniques to soften the bulk and scale of
the street; and the building.
c) providing an interesting and varied site layout
and roof design; AO11.3
d) articulating the roof with a, pitched or skillion Buildings are finished in colours of muted
design and complements the low rise character environmental tones. Broad expanses of a single
of the area and surrounding development; and colour are avoided with walls broken up by natural
e) incorporate materials, finishes and colours that tones or by design elements.
complement the natural environment.
Editor’s Note— Shades in the violet, blue, green
and yellow-green side of the spectrum, as well as
greys or browns, should be appropriate with whites
or bright colours restricted to trimmings.
The applicant submits that the proposal complies with the acceptable outcomes as
the upper and lower levels of the building will be expressed and distinguishable through the white
on green colour scheme, to provide articulation. Refer Figure 6 above.
The applicant has attempted to address the design concerns by incorporating some elements of
interest with higher level windows, changes in paint colour, grooves and roof pitching, however the
building’s presentation could be further improved through the provision of a wide eave overhang
to this front façade and rear. Conditions have been included accordingly.
Bicycle Spaces & End of Trip Facilities
The applicant submits that due to the generally bulky nature of goods sold at Hardware and Trade
stores, customers travelling to and from the proposed development are unlikely to be by bicycle
and therefore no customer bicyle parking spaces are practically required. The applicant anticipates
staff demand for bicycle parking to be low and based on an anticipated maximum of 10 staff,
provision of 2 bicycle parking spaces is considered appropriate.
While no bicycle parking spaces or end of trip faclities are shown on the plans, there appears
adequate space for inclusion of 2 parking spaces with provision also able to be made for 2 lockers
and a shower. Conditions have been included accordingly.
3.3.3 Business Activities Code
The proposal is consistent with the code’s requirements with the use compatible and consistent
with the type of activity, scale and intensity intended for the zone.
3.3.4 Stormwater
The application has been reviewed by Councils external consultant who has indicated that the
proposed Stormwater Management Plan appropriately takes a conservative approach to mitigate
peak discharges from the site. Conditions are recommended to be included as part of any approval.
3.3.5 Traffic Impacts
Councils Development Engineer has reviewed the proposal and noted that the impact to the
external traffic network (Eumundi Noosa Road/ Gateway Drive intersection) is between 1.5% to
3.1% of existing traffic volumes and is considered acceptable and consistent with the expected
land use.
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It was also noted that the traffic report accompanying the report detailed that 20 to 30% of trips to the trade yard may also attend the existing Bunnings Warehouse store which equates to around 3-5 trips during peak weekend hours. Councils development engineer and external consultant agreed that given the access arrangements, vehicles will be able to travel between the two carparking areas via Gateway Drive if required without additional traffic impacts to the existing intersections. Councils external traffic consultant also reviewed the application and agreed that the proposed access arrangement were acceptable on the basis that the trade component of the existing Bunnings Warehouse store was maintained. 3.3.6 Overlay Codes The site mapped as having the potential to contain Acid Sulfate Soils, with very small areas identified as subject to potential landslide hazard and a water main running along the site’s frontage to Eumundi Noosa Road. As a condition of approval an investigation can be undertaken into Acid Sulfate Soils and a management plan implemented where required. In terms of the Landslide Hazard Overly, the size of the area mapped as moderate landslide hazard is negigible wit the applicant advising the detail design will ensure stability of the site and surrounding land is maintained. The proposed works are located well clear of the water main. 4. CONSULTATION 4.1. Referral Agencies Not applicable 4.2. Internal Council Referrals The application was forwarded to the following internal Council officers: • Coordinator Engineering • Senior Environment Officer 4.3. Other Referrals The application was forwarded to the following external experts for review and/or comment: • Hydraulic engineer – Switchback Consulting • Traffic specialist – Holland Traffic Consulting • Council’s planning solicitor – Thynne Macartney 4.4. Public Notification The application was not required to be publicly notified for comment, given the application is identified as code assessable by the Noosa Plan 2020. 5. CONCLUSION & REASONS FOR DECISION It is concluded that the proposal meets the outcomes sought for the medium impact industry zone, serving the construction industry in the area. The applicant has also demonstrated that no changes are proposed to the Bunnings Warehouse store, and will continue to function as approved having a significant hardware component and timber sales area. The proposed built form is similar to other buildings in the area, with the increased building height in context with the streetscape and assisted by the wide landscape setback. A further design element though is required to be incorporated to provide more visual interest to the building’s presentation to Gateway Drive as required by the Noosa Plan 2020. Similarly, conditions are recommended for some bicycle parking spaces and end of trip facilities be provided on site for staff’s use.
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Departments consulted:
Office of the CEO, Mayor & Community Services Corporate Services
Councillors
Mayor & Councillors Director Director
Chief Executive Officer Community Development Financial Services
Executive Officers Sport & Active Lifestyles Fleet
Community Engagement Arts & Culture Revenue Services
People & Culture Community Connection ICT
Governance Customer Experience Commercial Property
Strategy & Environment & Development & Regulation Infrastructure Services
Sustainable Development
Director x Director Director
Strategic Land Use Planning x Development Assessment Infrastructure Planning, Design
and Delivery
Economic Development & Local Laws Civil and Asset operations
Destination Management
Environmental Services Environmental Health Asset Management
Innovation & Digital Hub Building & Plumbing Building & Facilities
Property / Permits Disaster Management
Waste