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2017-10-10 Planning & Environment Committee Agenda
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AGENDA
Planning & Environment
Committee Meeting
Tuesday, 10 October 2017
commencing at 9.30am
Committee Room, 9 Pelican Street, Tewantin
Committee: Crs Joe Jurisevic (Chair), Ingrid Jackson, Brian Stockwell, Tony Wellington
“Noosa Shire – different by nature”
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Full text of sections 2 to 61 (of 128)
Section 2
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
TABLE OF CONTENTS
ITEM PAGE
ATTENDANCE & APOLOGIES -
PRESENTATIONS -
REPORTS FOR CONSIDERATION OF THE COMMITTEE 3
1 MCU17/0049 DEVELOPMENT APPLICATION FOR MATERIAL CHANGE OF USE
FOR HOME BASED BUSINESS TYPE 3 SWIM SCHOOL AT 8 MCKENNA CT,
NOOSAVILLE 3
2 51989.93.1 CHANGE TO DEVELOPMENT NOTICE APPROVAL DNA 138 FOR
ADDITIONS TO A METAL FABRICATION WORKSHOP AND OFFICE SITUATED
AT 9 LEO ALLEY RD NOOSAVILLE 11
3 MCU16/0153 MATERIAL CHANGE OF USE OF PREMISES MULTIPLE HOUSING
TYPE 4 CONVENTIONAL (38 UNITS) VISITOR ACCOM TYPE 4 CONVENTIONAL
(12 UNITS) & REC16/0041 RECONFIGURATION OF A LOT (1 LOT INTO 29
LOTS) 215 DAVID LOW WAY PEREGIAN BEACH QLD 4573 26
4 MCU16/0130 & REC17/0021 DEVELOPMENT APPLICATION FOR A
PRELIMINARY APPROVAL TO RECONFIGURE A LOT (BOUNDARY
ALTERATION) & MATERIAL CHANGE OF USE FOR A HARDWARE, GARDEN &
LIFESTYLE CENTRE, OFFICE & INDUSTRIAL BUSINESS AT 101 &105
EUMUNDI NOOSA RD, NOOSAVILLE 62
5 MCU17/0024 - DEVELOPMENT APPLICATION FOR MATERIAL CHANGE OF
USE OF PREMISES - ENTERTAINMENT & DINING BUSINESS TYPE 1 FOOD &
BEVERAGES AND TYPE 2 RECREATION, AMUSEMENT AND FITNESS AT 4
THE ESPLANADE, SUNSHINE BEACH 76
6 APPEAL NO. 3188 OF 2017 DEVELOPMENT APPLICATION TO EXTEND THE
RELEVANT PERIOD FOR DEVELOPMENT PERMIT TO RECONFIGURE A LOT
(52 LOTS & PARK) AT 191 HOLLETT ROAD, NOOSAVILLE 127
CLOSED SESSION -
Page 2 of 128
Section 3
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
REPORTS FOR CONSIDERATION OF THE COMMITTEE
1 MCU17/0049 DEVELOPMENT APPLICATION FOR MATERIAL CHANGE OF USE FOR
HOME BASED BUSINESS TYPE 3 SWIM SCHOOL AT 8 MCKENNA CT, NOOSAVILLE
DOCUMENT INFORM AT ION
Author Assistant Development Planner, Billy Glover
Environment & Sustainable Development
Index MCU17/0049
Attachments Nil
APPLICATION DETAILS
Applicant Noosa Town Planning
Proposal Development Permit for Material Change of Use of Premises – Home-
based business Type 3 - Swim School
Properly Made Date 18 May 2017
Information Request Date 14 June 2017
Information Response Date 29 June 2017
Decision Due Date 10 September 2017
Number of Submissions 19
PROPERTY DETAILS
Property Address 8 McKenna Ct NOOSAVILLE QLD 4566
RP Description Lot 75 RP 869151
Land Area 680 Square Metres
Existing Use of Land Detached House
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Locality Noosaville
Zone Detached Housing
Overlays None
Assessment Type Impact
Page 3 of 128
Section 4
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
RECOMMENDATION
That Council note the report by the Assistant Development Planner to the Planning &
Environment Committee Meeting dated 10 October 2017 regarding Application No. MCU17/0049
for a Development Permit for (Home Based Business Type 3 - Swim School), situated at 8
McKenna Ct Noosaville and:
A. Refuse the application for the following reasons:
1. The application is contrary to The Noosa Plan and Home-based Business Code as
the proposed use will adversely impact on the amenity of surrounding residents due
to noise generated by the business and unsatisfactory provision of on-site car
parking.
2. The applicant has not satisfactorily demonstrated that noise generated by the
business activities will be satisfactorily mitigated for surrounding residents.
3. The scale and nature of the business is not appropriate or relative to the residential
property and is likely to dominate and conflict with the surrounding area given the
number of classes and operating hours proposed.
4. A number of properly made submissions were received from surrounding residents
raising valid objections to the proposed business.
B. Advise the applicant that the business is currently operating in breach of the Noosa Plan
and the Planning Act 2016 and must cease operating by the 16 November 2017.
REPORT
1. PROPOSAL
The application seeks approval for a Type 3 Home-based business – Swim School at 8 McKenna
Ct, Noosaville.
The home based swim school business is proposed to operate Monday to Friday, commencing at
8:30am and concluding at 6:00pm, with a break between 12:00pm (midday) and 2:30pm. The
classes are proposed to be held for 30 weeks a year, from January to the beginning of May and
recommencing at the end of August through to the beginning of December, relative to the school
terms. The proposed business will not run on public holidays or during the Christmas holidays.
A maximum of 10 classes and 3 students in each class will be held each day. Each class is
proposed to run for 30 minutes and have a 15 minute break between classes to prevent the
overlap of visiting clients on the site. The applicant has indicated there are 3 car parking spaces
to accommodate the visitors to the site, one in the dwelling’s double garage and two in the
driveway. To mitigate noise from the business the applicant has indicated a willingness to
construct an acoustic fence along a portion of the eastern boundary.
Figure 1 – Site Location
Page 4 of 128
Section 5
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
2. SITE DETAILS
2.1. Background
One resident of the Detached House has been operating a swim school from the site since
October 2016. Council received a complaint some months after commencement of the use. The
operator at the time advised that they had been informed the business was a Type 1 Home-
based business and did not require approval for the use. The business however, is clearly
defined as a Home-based business Type 3 use, due to the business being conducted outdoors
and involving noise generating activities. Council officers responded to the complaint and notified
the operator accordingly. The applicant subsequently engaged Noosa Town Planning to submit
the home-based business application to Council seeking approval.
Throughout the application process, Council officers attended the McKenna Ct site, surrounding
streets and adjoining properties to better understand the proposal and determine the proposal’s
potential impact on the area in regard to noise, carparking and overall amenity.
Council officers also met with the applicant to discuss the application and any changes that could
be made to better protect surrounding resident’s amenity and address the issues raised by
submitters prior to finalising the Council report. The applicant responded advising that flexibility is
required in the operating days and the number of classes available for her clients, but is willing to
reduce the maximum number of classes from 10 to 9 classes per day Monday to Thursday and to
4 classes on Friday. The applicant also further submitted that the proposed acoustic fence would
appropriately mitigate any noise from the business.
2.2. Site Description
The site is described as 8 McKenna Ct, Noosaville, on Lot 75 RP 869151 and is located in the
Detached Housing Zone of the Noosaville Locality. The site is 680 square metres and has a 20m
road frontage to McKenna Ct. The pool used for the swim school business is located at the
south-east corner of the lot to the rear. The pool is adjacent to the outdoor entertaining areas of
the dwellings of the adjoining neighbours.
2.3. Surrounding Land Uses
McKenna Ct is a residential cul-de-sac of 19 residential properties, located not far off Goodchap
St. Properties on the northern side of McKenna Ct back on to Wallace Park.
3. ASSESSMENT
3.1. Statutory Instruments – Planning Scheme
The proposed swim school use is identified as an inconsistent use within the zone and is
required to follow an impact assessable application process. Home-based Business Type 3 is
identified as an inconsistent use for residential properties as Type 3 businesses operate outside
and include noise generating activities. Home-based Business Type 3 is only identified as
consistent for the rural settlement and rural zones which generally provide much greater
separation distances for residents.
Locality Provisions
The Detached Housing zone is intended to provide for a high level of residential amenity for
residents and recognises the locality’s neighbourhoods are of varied character. Specific
Outcomes O1 of the Noosaville Locality Code seeks to ensure uses avoid significant adverse
impacts on the amenity enjoyed by residents, including acoustic qualities. The proposed swim
school has the potential to significantly impact on surrounding resident’s amenity due to the noise
from classes, and the number and frequency of classes being held. A number of inspections and
discussions with nearby neighbours showed that the swim class instructions and noise from
students receiving instruction are clearly audible to residents adjacent the pool and at times other
residents in the area. In this regard, submitters have indicated that some children attending
classes cry throughout their lesson and this is very disturbing. The respective location of the pool
on the subject site is shown below (Refer to figure 2).
Page 5 of 128
Section 6
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 2 – Location of pool on site
Home-Based Business Provisions
Noise
The noise generated by the business is currently clearly audible to residents adjacent to the site’s
pool throughout the operating hours of the use. While the proposed acoustic wall may assist in
reducing noise levels of the proposed swim school to the adjoining property on the eastern
boundary somewhat, it is unlikely to be fully effective. (Refer to Figures 3 and 4).
Councils Environmental Health Coordinator has advised that noise from the business’s activities
would travel over the proposed acoustic fence and the fence would need to be higher to
satisfactorily mitigate noise. Council’s Environmental Health Coordinator advises that the pool
would have to be fully enclosed to satisfactorily mitigate noise impacts for adjoining residents.
The noise cannot be suitably contained within the boundaries of the site without significant works
and the applicant has advised that enclosing the pool would not be viable.
Figure 3 – Pool
perspective facing
the eastern fence and
boundary of the site
Page 6 of 128
Section 7
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 4 – Pool
perspective facing
the southern fence
and boundary of
the site
Car parking
The applicant has suggested carparking provision for 3 visitors and one resident. The Noosa
Plan requires provision of 4 visitor carparks for a Type 3 Home-based business use. The
proposed site is capable of providing 3 visitor car parking spaces but this includes the use of the
garage for one of those carparking spaces. It is considered that the garage is not a practicable
visitor carpark space and is unlikely to be used by clients and for the most part clients are likely
to park in the street. Therefore, the proposal does not meet the Noosa Plan’s requirements for
onsite carparking (Refer to Figure 5).
Figure 5 – Visitor car parking designation (Noosa Town Planning 2017)
Page 7 of 128
Section 8
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The current on street vehicle parking is pictured below. These vehicles are likely to include other
residents and their visitors as well as cars associated with the swim school. Notably at the time
this picture was taken, the swim school was operating and there were no cars parked in the
driveway. (Refer to figure 6).
Figure 6 – Current on street vehicle parking
The application has been assessed against the Home-based Business Code. Specific Outcome
O53 of this Code seeks to ensure uses do not interfere with the amenity of the neighbourhood
including acoustic qualities. Specific Outcome O59 seeks to ensure adequate off-street vehicle
parking is provided without causing adverse impact to the residents of adjoining properties.
The pertinent issues arising out of the assessment against the Home-based Business Code are
discussed below:
Code Discussion
Home-based Noise
business code It is determined that the noise from the business use will not be able to be
suitably contained within the boundaries of the site, without the pool being
enclosed.
Car parking
The available car parking provisions and class times are not suitable to
accommodate for the users of the proposed business and requirements of The
Noosa Plan.
Submitters have indicated that the on street car parking generated by the
business is impacting on them and use of McKenna Ct.
Page 8 of 128
Section 9
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The areas of non-compliance with the Home-based business code are addressed below:
Home-based business code Proposed Compliance
O53 The Home-based business does not The noise generated by the business use X
interfere with the amenity of the interferes with the amenity of
neighbourhood from the operation of neighbouring residents located adjacent
machinery or electrical equipment or from to the swimming pool. The proposed
light, noise, vibration, smell, fumes, smoke, reduction in class numbers and times
vapour, steam, soot, ash, grit, oil, dust, does little to address these amenity
waste water, waste products, electrical impacts.
interference, traffic generation or otherwise;
O54 The scale and nature of the business The size of the property and location of X
is relative to the lot size and does not the pool in relation to surrounding
dominate or conflict with the area in which it properties does not provide sufficient
is situated; separation for surrounding residents. The
business use proposes up to 9 classes
each day and operates from Monday to
Friday, which is likely to dominate the
amenity for those immediate neighbours.
O59 Adequate off-street vehicle parking is The site does not provide adequate off- X
provided for the users of the operation street vehicle parking for users of the
without causing adverse impact to the operation.
residents of adjoining properties.
O60 The hours of operation do not cause The hours of operation of the business X
environmental nuisance to neighbouring are Monday to Friday 8:30am to 6:00pm,
residents. with a break between 12:00pm (midday)
to 2:30pm is considered excessive for a
use that operates outside in a residential
area with associated noise impacts.
4. CONSULTATION
4.1. Other Referrals
Not applicable
4.2. Public Notification
The application was publicly notified for 15 business days in accordance with the Sustainable
Planning Act 2009. The development proposal was publicly notified in the Noosa Today
Newspaper on Thursday 6 July and on site from Thursday 6 July to Friday 28 July 2017. 19
properly made submissions were received. 10 submissions were made in support and 9
submissions in objection to the development application. The following table provides a summary
and assessment of the issues raised by submitters. A map below shows the locations of the
submitters identifying those objecting and in support of the application. (Refer to Figure 7).
Issues Comments
Impact to amenity (Noise, 7 submissions (object) were made in regards to the negative affect on
parking) the surrounding amenity. This included noise generation concerns from
the use and impact on surrounding neighbours. Concerns were also
raised in regard to street amenity impacts, as parking and
manoeuvrability in the street was said to be negatively impacted by the
proposed use.
Community need 6 submissions (support) were made in regards to the home based
business being an asset and benefit to the community.
No impact to surrounding 4 submissions (support) were made in regard to the home based
area business not having any affect to neighbouring properties and on street
parking.
Inconsistent use (Residential 2 submissions (object) were made in regard to the inconsistent and
area) incompatible business use in a residential area, submissions suggested
that the particular use belongs in a community area (public pool).
Page 9 of 128
Section 10
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 7 – Map of submitters
5. CONCLUSION
The proposed business use is considered to be unsuitable for the site, due to the noise
generated by the business, the proposed extensive operating hours, close proximity to
neighbouring houses and limited off-street vehicle parking availability. This is evidenced by the
objections received from those residents directly adjacent the pool. The proposed reduced
number of classes does little to address these amenity impacts and similarly an acoustic fence is
unlikely to be effective in this instance due to its restricted height. The applicant has further not
been able to provide satisfactory car parking on site and this is likely to contribute some nuisance
and disruption in the street for residents.
It is further recommended that the applicant be advised that they must cease operating the swim
school which is currently operating in breach of the Noosa Plan and the Planning Act 2016. In
this regard a period of 20 business days from Council’s decision is considered a reasonable time
frame for the applicant and parents to make alternative arrangements for swimming lessons,
considering the impacts of the business on adjacent residents
Departments/Sections Consulted:
Chief Executive Officer X Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
X Waste & Environmental Health Revenue Services
Executive Services X Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service X Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 10 of 128
Section 11
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
2 51989.93.1 CHANGE TO DEVELOPMENT NOTICE APPROVAL DNA 138 FOR
ADDITIONS TO A METAL FABRICATION WORKSHOP AND OFFICE SITUATED AT 9
LEO ALLEY RD NOOSAVILLE
DOCUMENT INFORM AT ION
Author Coordinator Planning, Patrick Murphy
Environment and Sustainable Development
Index ECM/Application/51989.93.1
Attachments 1. Proposal Plans
APPLICATION DETAILS
Applicant Noosa Engineering & Crane Hire Pty Ltd
Proposal Change to Development Approval
Properly Made Date 14 August 2017
Decision Due Date 26 September 2017
PROPERTY DETAILS
Property Address 9 Leo Alley Rd NOOSAVILLE QLD 4566
RP Description Lot 251 MCH 4539
Land Area 4738 Square Metres
Existing Use of Land Industry
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Locality Noosaville
Zone Industry
Overlays Natural Hazards (Acid Sulfate Soils)
Assessment Type Minor Change to Approval
Page 11 of 128
Section 12
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
RECOMMENDATION
That Council note the report by the Coordinator Planning to the Planning & Environment
Committee Meeting dated 10 October 2017 regarding Application No. 51989.93.1 for Change to
Development Notice Approval DNA 138 for Additions to a Metal Fabrication Workshop and Office
situated at 9 Leo Alley Rd Noosaville and:
A. Approve the application in accordance with an amended condition 2 and additional
condition 16 to read as follows:
2. At least 19 off-street car parking spaces must be provided and access thereto to be
provided with a sealed pavement. The car spaces must be provided and marked on
site and made available and accessible at all times while the use is open for
business. The car parking spaces must not be used for storage of equipment and
materials and the use must be made available prior to the use of these building
additions.
Approved Plans
16. Development undertaken in accordance with this approval must generally comply
with the approved plans of development. The approved plans are listed in the
following table, and may be further amended by the conditions of this approval.
Plan No. Rev. Plan/Document Name Date
A 1.01 H Proposed Site Plan 05-09-17
A 1.02 F Proposed Site Plan – Ground Level 09-04-16
A 1.10 F Proposed Office Floor Plan 09-04-16
A 1.11 F Proposed Office Upper Floor 09-04-16
A 1.12 F Proposed Office Roof Plan 09-04-16
A2.01 F Proposed Site Elevations 09-04-16
A 2.10 F Proposed Office Elevations 09-04-16
A 2.11 F Proposed elevations 09-04-16
B. Note the report is provided in accordance with Section 63(5) of the Planning Act 2016.
REPORT
1. PROPOSAL
The application seeks approval for an extension to an existing building at 9 Leo Alley Rd,
Noosaville. The proposal seeks a two-storey addition situated adjacent to an existing metal
fabrication workshop.
The planning report submitted with the application advises that the “extension is for the purpose
of providing additional office, production and amenity space for employees of the existing use.
The ground level would compromise an entry, production office, toilet facilities and a kitchen and
lunch area. The upper level would comprise offices and a meeting room.
The existing office located in the northeast portion of the site will be removed.
The changes are to provide improved amenity for employees of the site and improve efficiencies
in the operation of the business. They will support the growth of a successful and longstanding
local business in the area.”
The proposal will result in a total use area of approximately 2375m2. Which overall is a reduction
of 15 square metres to the current use area. This application is presented to Council due to the
non-compliant parking outcomes proposed on the site.
The locality and building plans are included below.
Page 12 of 128
Section 13
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 1 – Site Location
Figure 2 – Site Location
Page 13 of 128
Section 14
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 3 – Proposed site and carpark layout
Figure 4 – Proposed front and western elevation
Page 14 of 128
Section 15
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 5 - Perspective Plans
2. SITE DETAILS
2.1. Site Description
The site is a rectangular industrial lot of 4738m2 in area and is situated at the corner of Sanders
Street and Leo Alley Drive Noosaville. A significant manufacturing workshop is situated adjacent
to the full length of the western boundary. Smaller buildings are situated adjacent to the rear
section of the eastern boundary. Between these buildings and the front boundary exists a
hardstand area which is used for the purpose of storing vehicles and materials associated with
the existing land use. A roofed structure was previously to the front of the workshop which has
recently been removed.
Figure 6 – Site Aerial
Page 15 of 128
Section 16
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
1.1. Surrounding Land Uses
North: 9 and 11 Commerce Court – industrial
South: Leo Alley Road
East: 11 Leo Alley Road: landscaping supplies
West: Sanders Street
1.2. Background
On 23 March 1989 DNA 138 was issued for Additions to a Metal Fabrication Workshop and
Office. The approval related to land known as 9 Leo Alley Road Noosaville, formally known as
Lot 251 on MCH 4539.
Included in the approval was a condition requiring:
2. Provision of at least 24 off-street car parking spaces, and access thereto to be provided
with a sealed pavement and designed, drained, constructed and maintained in accordance
with the Town Planning Scheme, Council’s Policies and to the reasonable satisfaction of
the Shire Engineer. Plans and specifications for these works are to be submitted to the
Shire Engineer for approval in conjunction with the Building Application. Upon submission
of the amended parking layout, the Shire Planner may reassess the required number of
spaces.
The additions provided for approximately an additional 2,074m2 of use area which comprised
1,788m2 for the manufacturing shed and 286m2 for the office. The resultant total use area of
approximately 2,390m2 required the provision of 24 car spaces. The following building approval
plan from 1990 identifies the two structures which were approved under the original approval.
The manufacturing shed was partially built and completed in 2015 and the office building was not
built.
Figure 7 – Building approval site plan
Shire records from January 1991 detail that car parking was provided outside of the original lot
for which the approval was issued. This was accepted as the original lot had been amalgamated
with the adjoining lot at the time. The amalgamation was registered on 31 July 1990 and the new
title reference was Lot 251 on MCH 5569.
Page 16 of 128
Section 17
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Subsequent to the acceptance of the car parking the land was subdivided in 1996 and
subsequently sold. The subdivision appears to have been effected by the State government and
did not include Council approval. Consequently, the use of the subject land continued without the
provision of the required car parking spaces
The following image (Figure 8) is a site plan from the building permit detailing the location of car
parking and the approximate location of the current title boundary.
Figure 8 – Car parking designation
The following images detail the site in May 2014 and September 2015.
Figure 9: May 2014
Page 17 of 128
Section 18
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 10: September 2015
2. ASSESSMENT
2.1. Instruments for Statutory Assessment
Under the Planning Act 2016 a minor change means a change that -
i. would not result in substantially different development; and
ii. if a development application for the development, including the change, were made when
the change application is made would not cause -
A. the inclusion of prohibited development in the application; or
B. referral to a referral agency, other than to the chief executive, if there were no referral
agencies for the development application; or
C. referral to extra referral agencies, other than to the chief executive; or
D. a referral agency to assess the application against, or have regard to, matters
prescribed by regulation under section 55 (2), other than matters the referral agency
must have assessed the application against, or have had regard to, when the
application was made; or
E. public notification if public notification was not required for the development
application.
The application constitutes a minor change as it will not result in a substantially different
development as the built form and land use are consistent with the original approval.
Furthermore, if an application for the development including the proposed changes were made
today it would not result in prohibited development, require any referrals and public notification
would not be required.
Page 18 of 128
Section 19
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The built form of the development demonstrates compliance with applicable standards and is
therefore supported. An assessment of the proposed changes to the built form is detailed in the
following table.
Criteria Planning Scheme Proposal Complies
Site Area N/A 4738.24m²
Building height
storeys 2 storeys max 2 storeys
metres 10 metres 7 metres
Boundary setbacks
Frontage (Leo Alley) 6 metres min 7 metres
Frontage (Sanders St) 6 metres min 6.5 metres
Carparking 24 uncovered min 19 uncovered X
Car parking
The key aspect requiring consideration in the assessment of this application is the provision of 19
car spaces when 24 car spaces are required by the current approval. It is important to note that
the office extensions are not intended to facilitate more staff, but rather provide improved amenity
for the existing staff on the premises. The new building is also to replace an existing office
located in the north-eastern corner of the site.
If an application were received today to develop the site with 2,375 square metres of use area for
the purpose of Industrial Business Type 2 – Production, Alteration, Repackaging and Repairing,
32 car parking spaces would be required.
In support of the variation the applicant has submitted that the business has a maximum of 15
staff on site at any one time. The applicant has also advised that there are no retail goods offered
for sale at the premises and that there is a very low turnover of customers throughout the day
such that there would usually be no more than 1 customer on site at any time with a maximum of
2 customers on occasion.
At present a hardstand area is situated adjacent to the eastern boundary which will
accommodate 16 of the proposed 19 car spaces, two of the car spaces are tandem spaces which
are considered reasonable for staff parking. This area is currently being utilised for the purpose
of equipment, machinery and vehicle storage. Accordingly, an amended Condition 2 will require
that areas set aside for the purpose of car parking are only used for car parking purposes when
the use is open for business.
It is considered that the provision of 19 car spaces is adequate in relation to peak demand use
(15 staff and 2 customers). Whilst this is 5 less than the current required number of spaces it is
noted that very limited staff parking currently occurs on the site and that the proposal provides for
a substantial improvement to the current situation. It is also noted that the occupier of the land,
Noosa Engineering and Crane Hire, have operated from the site for approximately 26 years. In
light of recent upgrades to the site, being the 2015 increase to the manufacturing shed and the
current proposal, it is reasonable to assume that they will continue to occupy the site for an
extended period of time. Therefore, the specific relationship between the car parking provided on
site and staff numbers is likely to remain aligned for some time.
The capacity for the site to accommodate the car parking associated with the 15 staff members is
important as staff cars are likely to currently occupy public car parking within the surrounding
estate. These cars would currently be parked for an extended period of time during each working
day. The resultant impact on nearby street parking will be significant in an area where car parking
availability is often constrained.
Page 19 of 128
Section 20
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
3. CONCLUSION
The proposed additions to the Metal Fabrication Workshop and Office are considered reasonable
as the built form parameters demonstrate compliance with the Noosa Plan. The proposed
variation to car parking is considered reasonable as it provides significant rectification to the
historical issue and adequately provides for staff car parking.
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service x Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
Page 20 of 128
Section 21
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 21 of 128
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Page 21 of 128Section 22
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 22 of 128
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
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Page 22 of 128Section 23
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 23 of 128
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Page 23 of 128Section 24
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 24 of 128
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 25 of 128
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
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Page 25 of 128Section 26
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
3 MCU16/0153 MATERIAL CHANGE OF USE OF PREMISES MULTIPLE HOUSING TYPE
4 CONVENTIONAL (38 UNITS) VISITOR ACCOM TYPE 4 CONVENTIONAL (12 UNITS)
& REC16/0041 RECONFIGURATION OF A LOT (1 LOT INTO 29 LOTS) 215 DAVID
LOW WAY PEREGIAN BEACH QLD 4573
DOCUMENT INFORM AT ION
Author Coordinator Planning, Patrick Murphy
Environment & Sustainable Development
Index ECM/Application/MCU16/0153 and REC16/0041
Attachments 1. Proposal Plans
APPLICATION DETAILS
Applicant Thomco No 2087 Pty Ltd
Proposal Development Permit for Material Change of Use of Premises -
Multiple housing Type 4 Conventional (38 units) Visitor
accommodation Type 4 Conventional (12 units) and
Reconfiguration of a Lot (1 Lot into 29 Lots)
Properly Made Date 22/12/2016
Information Request Date 27 January 2017
Information Response Date 28 March 2017
Decision Due Date 25 October 2017
Number of Submissions 415
PROPERTY DETAILS
Property Address 215 David Low Way PEREGIAN BEACH QLD 4573
RP Description Lot 77 SP 231615
Land Area 2.312 hectares
Existing Use of Land Supermarket/speciality shops and vacant land
STATUTORY DETAILS
SEQRP Designation Urban Footprint
Locality Eastern Beaches
Zone Open Space Recreation Zone
Semi-Attached Housing
Overlays Natural Hazards Overlay – Bushfire hazard
Natural Hazards Overlay – High and Low Potential Acid Sulfate
Soils
Assessment Type Impact
Page 26 of 128
Section 27
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
RECOMMENDATION
That Council note the report by the Coordinator Planning to the Planning & Environment
Committee Meeting dated 10 October 2017 and refuse Applications MCU16/0153 for a
Development Permit for Development Permit for Material Change of Use of Premises - Multiple
Housing Type 4 Conventional (38 units) Visitor accommodation Type 4 Conventional (12 units)
and REC16/0041 for the Reconfiguration of a Lot (1 Lot into 29 Lots), situated at 215 David Low
Way Peregian Beach for the following reasons:
1. The proposed works are contrary to the Desired Environmental Outcomes of the Noosa
Plan as the development does not provide for low cost visitor accommodation on the site;
2. The proposed works are contrary to the Eastern Beaches Locality Code as the
development is not compatible with the strategic intent for the site and the character of the
surrounding area;
3. The proposed works are contrary to the Natural Hazards Overlay Code as the risk from
bushfire has not adequately been addressed and the layout may compromise the safety of
people and property in the event of a bushfire;
4. The applicant has not sufficiently demonstrated that the development will not adversely
impact on the specialised habitat for threatened species through discharge of stormwater
through the wetland areas of the National Park;
5. The application for the proposed works has not demonstrated compliance with State
Planning Policy July 2017 Part E Biodiversity as impacts on matters of state significance
have not been adequately addressed;
6. The application has not demonstrated overwhelming community need to justify overriding
the planning scheme; and
7. A number of properly made submissions have been received raising valid grounds of
objection.
REPORT
1. PROPOSAL
The applicant seeks approval for a Reconfiguration of a Lot (1 Lot into 29 Lots and Access
Easement) and Material Change of Use to establish Multiple Housing (26 x Type 4 Conventional
Units), Visitor Accommodation (20 x Type 4 Conventional Units) and shared Multiple Housing &
Visitor Accommodation (12 x Type 4 Conventional Units) at 215 David Low Way, Peregian
Beach.
The development is proposed to be constructed over two (2) stages, with Stage 1 involving the
construction of all detached Multiple Housing Units, as well as all necessary infrastructure,
landscaping and communal facilities (communal swimming pool, landscaping areas. etc) to
service the development. Stage 2 would comprise the attached Visitor Accommodation and
Multiple Housing building (hotel and conference building).
The application also seeks to reconfigure the subject site into 29 Lots and an Access Easement,
with all 26 Multiple Housing dwelling units in Stage 1 proposed to be located on individual
standard format lots within a community title scheme. The proposed hotel and conference
building and road reserve are proposed to be located on a separate lot, within a community title
format. Additionally, Peregian Village Market is to be subdivided off on a separate title as part of
this application.
The following images detail the locality plan:
Page 27 of 128
Section 28
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 28 of 128
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5 1 1 1 45 1 2839 2143 33 26 69 zSection 29
PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Stage 1 of the proposal comprises four different dwelling unit types. Stage 2 comprises a
separate hotel and conference centre building which contains 32 dwelling units, it is proposed
that 20 of the dwelling units are used for Visitor Accommodation and that the remaining 12 are
used for either Visitor Accommodation or Multiple Housing.
The four dwelling unit ‘types’ within Stage 1 are referred to as Wallum, Kamala, Marram and
Reed Beach House.
The dwelling units provide for the following:
Dwelling Unit Type Bedrooms Car spaces
Wallum (x5) 3 (+46m2 commercial space) 3 per unit, covered (15 total)
Kamala (x5) 3 (+ study) 2 per unit, covered (10 total)
Marram (x6) 3 (+ study) 2 per unit, covered (12 total)
Reed Beach House 4 bedroom 1 per unit, covered + 1 per unit,
(x10) uncovered (20 total)
Total: 26 88 bedrooms 57 (47 covered and 10 uncovered)
Additional car parking and bedrooms associated with the hotel and conference centre building
are as detailed below:
Bedrooms Car spaces
24 x 1 bedroom 40 covered spaces
6 x 2 bedrooms
2 x 3 bedrooms
(12 of the 32 dwelling units have kitchens)
Page 29 of 128
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The reconfiguration component of the application seeks to create 29 lots and an access
easement from the current lot. Twenty-six of the twenty-nine lots relate to the proposed multiple
dwelling units, lot twenty-seven relates to the hotel and conference centre building associated
with stage 2, lot twenty-eight relates to the existing commercial development with the common
property forming the twenty-ninth lot. The applicant advises that the area of land attributed to the
multiple dwelling units, hotel and conference centre and associated common property equates to
1.157 hectares.
The proposed lot sizes for the multiple dwelling units within Stage 1 range from 160m2 to 246m2.
The following images detail the site layout, floor plans and elevations of the proposal.
Figure 4: Site plan
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 5: Proposed dwelling types
Figure 6: Wallum house type floor plans
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 7: Wallum House type elevations
Figure 8: Kamala house type floor plan
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 9: Kamala house type elevations
Figure 10: Marram house type floor plans
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 11: Marram House type elevations
Figure 12: Reed Beach House type floor plans
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Figure 13: Reed Beach House type elevations
Figure 14: Hotel and Conference Centre elevations
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The reconfiguration plan is detailed below:
Figure 15: Lot reconfiguration plan
Proposal plans are detailed within Attachment 1
2. SITE DETAILS
2.1. Background
Material Change of Use
An application (132007.1259) for a Material Change of Use for visitor accommodation,
restaurant, shops and office was originally refused by Council on 21 August 2009 but
subsequently settled on 12 February 2010 through the appeal process. The application attracted
2 properly made and 4 not properly made submissions. The approval was over 4 lots, 3 with
frontage to the David Low Way and a larger lot to the rear of these lots, all accessed from the
then Unnamed Road, which is now Sandpiper Court.
The approved development comprised a commercial building fronting the David Low Way, which
included 306m² of restaurant, 387m² of retail uses on the ground/podium level and a low cost 58
bed visitor accommodation use to the first floor with parking underneath this building. To the rear
of the site and behind the Peregian Beach Hotel, 2 three storey accommodation buildings
consisting of 32 x 3 bedroom units, pool/BBQ area and 30 individual 2, 3 and 4 bedroom “beach
shacks” were approved. The most western portion of the site was conditioned to be dedicated to
Council as parkland for environmental purposes.
On 24 January 2012 a permissible change was issued by the Planning and Environment Court
(Appeal No. 4783 of 2011*). The primary changes included:
Staging the development into 3 stages, being:
o Stage 1 – commercial building fronting David Low Way and rehabilitation and
dedication of the parkland to Council.
o Stage 2 – The 2 larger visitor accommodation buildings (32 x 3 bedroom units) to the
rear of the site.
o Stage 3 – 30 Beach Shacks (2, 3 and 4 bedroom individual buildings); and
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
An updated Stormwater Management Plan to reflect the staging and the current best
practice water management objectives.
As part of this application to change the development approval, the court did not allow the
addition of juliette balconies and additional outdoor dining facilities to the commercial and visitor
accommodation building fronting David Low Way. The court did not agree the juliette balconies
and the outdoor dining areas constituted a permissible change pursuant to Sustainable Planning
Act 2009.
As such a new impact assessable application for a development permit to include juliette
balconies and additional outdoor dining (MCU12/0023) was lodged and subsequently approved
on 26 July 2012. The application attracted 198 properly made and 12 not properly made
submissions. Of the 198 properly made submissions, 81 objected and 117 supported the
proposal. The submitters were primarily concerned with noise generated from the outdoor dining
activities.
On 15 November 2013, Council agreed to extend the relevant period to 28 September 2016 and
extend the sunset provision to 4 February 2018 (Appeal No. 4139 of 2013).
On 16 March 2016 Council refused to further extend the relevant period and advised that a
request to extend the sunset clause must be made to the Planning and Environment Court. The
application was refused as primarily events had overtaken the approval with the supermarket and
speciality shops having been built over a significant portion of the site. The applicant has
appealed this decision and the matter is currently before the Planning and Environment Court.
The following image details the site layout of this approval (132007.1259).
Figure 16: Layout plan for DA 132007.1259
Reconfiguring of a Lot
A Development Permit for Reconfiguring a Lot (152010.627) was approved by Council on 29
October 2010. This approval created the western lot required by the material change of use
approval to be dedicated as parkland for environmental purposes and 2 other lots, being one lot
Page 37 of 128
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
for the commercial and visitor accommodation use fronting David Low Way and the other lot for
the majority of the visitor accommodation use located to the rear of the site.
This subdivision approval was subsequently changed in order for the IGA supermarket and
associated shops (MCU13/0251) to be wholly sited within one lot as the development was
straddling the original approved boundaries. The lots have been sealed by Council but to date
the parkland and commercial lot have not been registered at the titles office. It is arguable that as
the ‘Council reserve’ has not been registered with the titles office that the proposal will in fact
result in the creation of 30 lots.
Material Change of Use (IGA)
A Development Permit for Material Change of Use - Retail Business Type 2 - Shop,
Entertainment & dining business - Type 1 Food & beverages, Commercial business Type 1-
Office was issued on 29 May 2014. The approval related to the south-eastern portion of the land
and allowed for the development of a shopping complex approximately 1600m2, the overall
development occupying approximately 5,800m2 of the overall site.
2.2. Site Description
The site is situated on the western side of David Low Way and the current title on which the
development is proposed is approximately 2.312 hectares in area.
A commercial development is sited within the south-eastern corner of the site which currently
accommodates an IGA supermarket and a number of smaller retail outlets.
An easement for stormwater purposes runs in a north-south direction in that part of the site which
accommodates the existing commercial development.
The site has frontage to both David Low Way and Sandpiper Court.
Earthworks occurred to the front of the site to facilitate the existing commercial development, with
the car park and floor level of the existing commercial building significantly lower than the level of
the abutting David Low Way.
To the west of the site, is approximately 5,300m2 of land which has been identified for the
purpose of Council reserve. This land is not suitable for development purposes as it is subject to
flooding and contains remnant native vegetation.
2.3. Surrounding Land Uses
North Peregian Beach Hotel, Rufous Street kindergarten, Rufous Street and reserve
South Noosa National Park and Sandpiper Court
East Peregian Beach Hotel, IGA (within same allotment) and David Low Way
West Noosa National Park
2.4. Pre-lodgement meeting
A formal pre-lodgement meeting was held with the property owner and their key consultants on
14 December 2016. The discussions focussed on the primary planning issues to be assessed
including need, use conflicts, layout/design, bushfire, traffic and stormwater.
The proposed use of the land was identified as a critical issue given the zoning of the land and
the previous approval on the land which was supported by Council through an appeal process
and included low to mid cost visitor accommodation.
The notes from the pre-lodgement meeting included the following advice:
The Open Space Recreation zone in Peregian Beach specifically seeks to protect and
retain the site for low cost visitor accommodation needs reflective of the site’s previous
use as a caravan park, but also acknowledges that a range of visitor accommodation may
be provided where integrated with budget accommodation. There is no support given to
permanent residents on the site.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
It is noted that the current approval included only visitor accommodation, with no
permanent resident accommodation proposed. This approved development was
supported by Council through an appeal process as it was acknowledged that it included
low to mid cost visitor accommodation being a reasonable alternative to the Planning
Scheme’s intent to retain the caravan park.
It is considered the current proposal does not meet the Planning Scheme’s intent for the
site as there is a lack of and a limited range of visitor accommodation proposed (20 units
visitor only and 14 units for both visitor/permanent).
Given the proposal conflicts with the planning scheme, a needs analysis should be
submitted as part of any application package, which should demonstrate sufficient
community and economic need for the proposal. The needs analysis should review the
need for further visitor accommodation, examining the type of accommodation and the
amounts. This will assist in determining the appropriate mix of permanent (if any) and
visitor accommodation.
3. ASSESSMENT
3.1. Instruments for Statutory Assessment
Under the Sustainable Planning Act 2009 the application must be assessed against each of the
following statutory planning instruments to the extent they are relevant to the development:
State Planning Policies;
the South East Queensland Regional Plan;
State Planning Regulatory Provisions;
any Structure Plan or Master Plan in place for declared areas;
any Preliminary Approval Overriding the Planning Scheme for the land;
the Planning Scheme for the local government area; and
any Temporary Local Planning Instrument in place for the local government area.
Of these, the statutory planning instruments relevant to this application are discussed in the
sections that follow.
3.2. State and Other Statutory Instruments
State Planning Policies
The following State Planning Policies are applicable to this application:
Flood Hazard Area
Bushfire Hazard Area
The above State Planning Policies have been deemed by the Minister for Local Government and
Planning as appropriately reflected in the Planning Scheme and therefore do not warrant a
separate assessment.
State Planning Policy July 2017
A new State Planning Policy was introduced in July 2017 which requires assessment of
development with due regard to Matters of State Environment Significance (MSES). As the
application was lodged prior to the implementation of the policy Council may only have regard to
it.
A review of the MSES shows the western portion of the site contains regulated vegetation for
essential habitat, high ecological significance wetlands and wildlife habitat.
The location of the development footprint is generally clear of these values, however the
submitted documentation regarding the impacts of the development and water quality on these
values either requires further information or has not been adequately addressed.
The State Planning Policy requires adverse impacts on matters of state environment significance
to be reasonably avoided and, where not possible, minimised. Any residual impacts require an
offset in accordance with the Environmental Offsets Act 2014.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The proposed development has the potential to have adverse impacts on MSES and further
information on the magnitude of these impacts is required to satisfy the State Planning Policy. It
is anticipated this could be conditioned to be complied with, however this may result in a revised
development layout.
South East Queensland (SEQ) Regional Plan 2017
The site is located within the Urban Footprint area of the SEQ Regional Plan.
The Regional Plan identifies that the Urban Footprint includes established urban areas and land
with the potential for new urban development.
The area incorporates the full range of urban uses including housing, industry, business,
infrastructure, community facilities……
The priority for developing land in the Urban Footprint is to accommodate urban growth.
However, the Urban Footprint is not an urban zone and does not imply that all land can be
developed for urban purposes.
The proposal is considered to be an urban development which accords with the intent of the SEQ
Regional Plan. However, it is noted that the Urban Footprint principles includes that the Urban
Footprint is a tool for managing, rather than simply accommodating, regional growth.
State Planning Regulatory Provisions
The following State Planning Regulatory Provisions apply to the application:
SEQ Regional Plan Regulatory Provisions
South East Queensland Koala Conservation SPRP.
The proposal is for an urban activity within the Urban Footprint and is consistent with the SEQ
Regional Plan Regulatory Provisions.
The subject site is located within the Koala Assessable Development Area and the proposed
development is required to be assessed against Division 7 of the South East Queensland Koala
Conservation State Planning Regulatory Provisions.
The construction phase will result in clearing of non-juvenile koala habitat trees and will require
offsetting in accordance with assessment criteria contained in Division 7.
The report submitted with the application advises that the development provides safe koala
movement opportunities due to the site containing a 5,276m2 environmental reserve along the
complete width of the lot adjacent to the Noosa National Park.
3.3. Statutory Instruments – Planning Scheme
Locality Provisions
The subject site is located in the Eastern Beaches Locality and is zoned both Open Space
Recreation and Semi-Attached Housing. The section of the site which abuts David Low Way is
zoned Semi-Attached Housing, however, this area has already been developed for the purpose
of a commercial development. The proposed uses are identified as inconsistent uses within the
Open Space Recreation Zone and are required to follow an impact assessable application
process. Visitor Accommodation Type 4 Conventional is a consistent use where located in
conjunction with a Visitor Accommodation Type 2 Caravan Park. In this instance there is no
caravan park proposed.
A number of provisions within the planning scheme are relevant to the assessment of this
application.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Desired Environmental Outcomes
k) TOURISM
A tourism industry is developed and sustained by—
iii. focussing on the coastal localities of Noosa Heads, Noosaville, Sunshine Beach and
Peregian Beach,
iv. offering visitors a range of experiences and accommodation types;
xi. retaining a range of visitor accommodation choices including camping grounds,
caravan parks, backpacker hostels, hotels, motels, resorts, B&Bs, guesthouses and
serviced apartments;
xii. avoiding mixing long-term accommodation for residents with short-term
accommodation for visitors, to avoid potential conflicts and the erosion of visitor
accommodation;
Overall Outcomes
The following Overall Outcomes of the Eastern Beaches Locality Code are relevant to the
assessment of this application:
e. The Eastern Beaches Locality retains its primary role as a residential area, though
continues to provide some visitor accommodation and a range of local retail and
commercial functions at Sunshine Beach, Sunrise Beach and Peregian Beach;
g. The scale and form of buildings and other structures are—
i. designed to be responsive to the informal beachside character of the locality, being
low rise buildings, with pitched or curved roofs and building materials that blend with
the dune and coastal landscape;
ii. in keeping with the surrounding streetscape and landscape qualities;
iii. integrated into the topography and native vegetation of the dune system which
dominates the locality; and
iv. consistent with the amenity and safety expectations of the community;
h. Residential development is characterised by—
i. low impact buildings of a domestic scale within densely landscaped settings;
ii. building designs that are well articulated and that use design elements, materials that
respect the coastal landscape character;
iii. building designs that avoid hard lines and boxy shapes characteristic of
Mediterranean/Tuscan influenced design;
iv. Detached housing and Duplexes as the dominant development form; and
v. low rise Multiple housing development that is limited to the areas within the vicinity of
the Sunshine Beach neighbourhood centre;
i. Emphasis is placed on the protection and retention of low cost accommodation consistent
with maintaining a diversity of accommodation types for visitors to the locality;
jj. For Peregian Beach—
ii. Multiple housing Type 2 Duplex and Visitor Accommodation Type 4
Conventional are located in close proximity to the Peregian Beach neighbourhood
centre shown in the Neighbourhood Centre Zone;
rr. For the Open Space Recreation Zone—areas of open space contribute to the desired
lifestyle of residents by offering a variety of passive and active recreational experiences
that are conducive to community interaction and wellbeing;
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
The proposed development presents obvious conflicts with The Noosa Plan provisions as the
use of Open Space Recreation zoned land for the purpose of Multiple Housing Type 4 is an
inconsistent use. According to the definition within the planning scheme inconsistent use “means
the use is strongly inappropriate in the relevant zones because it is incompatible with the other
uses generally expected in the zone”.
The use of Open Space Recreation zoned land for Visitor Accommodation Type 4 is a consistent
use where in conjunction with Visitor Accommodation Type 2 Caravan Park. In this instance no
caravan park is proposed.
The planning scheme is clear and specific in that visitor accommodation is wanted on the site;
accommodation for permanent residents is not.
A starting point for the planning scheme is the desired environmental outcomes and the
proposed development clearly conflicts with the relevant tourism outcomes. The proposal does
not seek to retain the low cost visitor accommodation despite a long history of the site being used
for such purposes as specifically sought and supported by the planning scheme. The intent has
been that this site be a location for the accommodation of visitors. The zoning of the land has
complemented a vision to exclude permanent residents from the site.
If the development were to proceed, the availability of low cost visitor accommodation for visitors
to this key location will end completely, whilst the residential housing component is likely to only
be available to a few.
The location of the site within close proximity of the commercial hub of Peregian Beach makes it
an ideal site for visitor accommodation clientele. Visitors will contribute to the local economy and
are likely to spend more each day than permanent residents.
Furthermore, the proposed development mixes visitor accommodation with permanent
accommodation and thereby creates potential for conflict between users.
In addition to being inconsistent with the strategic objectives of the Noosa Plan, the proposal is
also inconsistent with the specific provisions for the Eastern Beaches Locality Code. The
development is inconsistent with the locality code as it provides for development which is not
consistent with the character of residential development within Peregian Beach. Furthermore, the
proposal seeks to develop multiple housing within Peregian Beach, whereas the preferred
location for multiple housing is within the vicinity of the Sunshine Beach neighbourhood centre.
The locality code places emphasis on the protection and retention of low cost accommodation
and even provides a specific density for the purpose of a visitor hostel. The planning scheme’s
intent for the preferred use of the site is again quite clear however the proposal does not seek to
either protect or retain the historical use of the site for the purpose of low cost accommodation.
It is acknowledged that a development approval for a small scale supermarket has been issued
and acted upon for a portion of the site. While this commercial development is not necessarily
envisaged by the planning scheme there was a strong need identified for a supermarket for
visitors and residents in Peregian. The site was also well located opposite the existing village
with no real alternative suitably located site and was proposed over an area of the site that
included commercial development in the earlier approval.
The Sustainable Planning Act 2009 provides that Council may only approve the application if
there are sufficient grounds despite the conflict, and the grounds must be matters of public
interest. The following discussion topics set out whether there are sufficient grounds for Council
to approve the application.
Built Form
The locality code includes built form requirements for new development including density,
building height, site cover and gross floor area. Due to the nature of the use proposed it is
considered suitable to assess the proposed development against the provisions of both the
Semi-Attached Housing Zone and the Open Space Conservation Zone. This assessment is
detailed in the following table.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Criteria Planning Scheme Proposal Complies?
Open Space Semi-Attached
Conservation Housing
Site Area - - 1.157ha (this excludes N/A
the land which is to be
dedicated as public use
land in accordance with
MCU13/0251 and the
area associated with
commercial
development)
Population - 100 persons per Density of 141.6 X
density hectare or 320 proposed which equates
persons per to 122.4 persons per
hectare for the hectare
purpose of visitor
hostel
Gross floor area N/A 4628m2 Approx. 5797 m2 X
Site cover N/A 40% 5463m2 - 39%
Plot ratio N/A N/A
Building height
storeys 2 storeys max 2 storeys max 3 storeys X
metres 8 metres 8 metres 12 metres for hotel and X
11 metres for indoor function centre
sporting complex
The dwelling units within
Stage 1 are 2 storey
Carparking Stage 1 Stage 1
26 x 3+ beds = 52 26 x 3+ beds = 52 47 covered in garages
covered + 7 visitor covered +7 visitor and car ports, 10
external + 8 visitor
Stage 2: Hotel and Stage 2: Hotel and
Conference Centre Conference Centre
Building Building
Multiple dwelling Multiple dwelling
units units 40 covered
2 x 3 bed = 4 2 x 3 bed = 4
covered + 1 = 5 covered + 1 = 5
6 x 2 bed = 6 6 x 2 bed = 6
covered covered
4 x 1 bed = 4 4 x 1 bed = 4
covered covered
+ 3 visitor + 3 visitor
Visitor Accom. Visitor Accom.
20 units = 20 20 units = 20
covered + 2 visitor covered + 2 visitor
(22) (22)
Total = 35 + 5 visitor Total = 35 + 5
visitor
Stage 1 & 2 Total Stage 1 & 2 Total
99 Stage 1 & 2 Total 87 covered + 10
99 uncovered
8 external visitor
The above table identifies that the proposed built form of the development is inconsistent with the
requirements of the Semi-Attached Housing Zone. In this regard it is relevant to consider the built
form of the previous approval for visitor accommodation on the subject site (132007.1259). The
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
previous approval did allow for three-storey development and resulted in significant site cover
and gross floor area. However, it is important to note that the proposal is inconsistent with the
existing built form within the nearby Semi-Attached Housing zone within Peregian Beach which
does not contain residential development of similar density or built form.
Of particular concern is the effect which fill on the site will have on the interface with Rufous
Street. Despite being requested, an elevation plan of the development as viewed from Rufous
Street has not been provided. However, it is evident from the floor plans that both the ground and
first floors of the ‘Wallum’ dwellings will be setback only 1.0 metre from this boundary. Cross
section diagrams demonstrate that there will be approximately 1.5 metres of fill in this section of
the site. The resultant fencing to retaining walls at the Rufous Street boundary and the elevated
height of dwellings setback 1.0 metre from this boundary is not an acceptable design outcome as
they will result in excessive bulk adjacent to Rufous Street.
It is also noted that the Reed Beach Houses do not provide for two covered car spaces, only one
covered space is provided. Whilst an additional uncovered car parking space is situated adjacent
to the front boundary it is arguable the design of these dwelling units includes a second dwelling
unit. This is attributed to the fourth bedroom which includes an attached living area, ensuite and
kitchen. It is the applicant’s position that this is not a second dwelling unit as a door connects the
area with the remainder of the dwelling unit. However, the area has separate access via an
independent set of stairs and access landing. The ability for this part of the house to be
separately occupied is likely to generate additional car parking demands which are not
adequately provided. Furthermore, this is considered to be an additional dwelling unit which
contributes to population density. This would result in a population density of 137 persons per
hectare which exceeds the 100 persons requirement.
Land Use & Works Provisions
The following codes which regulate land use and design are most applicable to this application:
Residential Uses Code
Visitor Accommodation Code
Reconfiguring a Lot Code
Natural Hazards Overlay Code
Biodiversity Overlay
Generally speaking, the development complies or can comply with most provisions of these
codes; however, some significant issues arise. The primary assessment issues for the
development are discussed later in this report.
3.3.1. Primary Planning Scheme Assessment Issues
Need
Since the proposal raises fundamental conflicts with the planning intent for the site, need is
crucial to this assessment. Need may present community benefit grounds sufficient to support
the application. Need in the development sense is commonly recognised as relating to
community wellbeing. A development may be said to be needed if, on balance, it improves
community wellbeing - such as by access to new services or facilities, or a range of other ways.
The application included an assessment of the level of need which includes an analysis of
existing and projected demand for short term accommodation and the residential property market
in Peregian Beach. Importantly the report proposes that there is a lack of short term demand for
lower cost tourist accommodation and that the market currently requires boutique visitor
accommodation that it is not currently provided within Peregian Beach.
The applicant’s needs analysis includes the following comments:
It is Urban Economics’s opinion that there is strong need for the proposed development
including both short-term accommodation at the right mix and scale to ensure viability and
residential dwellings; and that the subject site represents a logical and strategic location for
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the proposed development. Need includes a variety of iterations including community need,
economic need and planning need…
Peregian has demonstrated declining occupancy rates for commercial short term
accommodation facilities as a result of both demand and supply factors, suggesting that
existing facilities are not necessarily meeting the needs of current and emerging visitor
markets and that there is a need for new and additional facilities at the right type and scale
in order to remain viable and in order for Peregian to retain its relevance and
competitiveness in the Coast’s tourist and visitor markets. Emerging visitor markets for the
Sunshine Coast are not necessarily well represented or catered for in Noosa Shire and
Peregian Beach…
It is Urban Economics’s opinion that there is need and demand for the proposed short term
and permanent residential development in Peregian Beach and that the proposed
development would have a net economic and community benefit for the Peregian Beach
community, complimenting and consolidating the existing role of Peregian whilst not having
a significant adverse impact on existing facilities in Peregian nor on the role of Noosa as
the premier tourist destination for the Shire.
The addition of 20 short term motel rooms and 12 accommodation units to the commercial
accommodation market in Peregian Beach would increase the overall commercial short
term accommodation stock by 26%. However, the proposed rooms would be positioned
differently to the existing commercial stock, target different visitor market sectors, and
represent only a small number of additional rooms particularly when including the overall
stock of holiday homes in the area, and would therefore not have a significant impact on
the existing commercial visitor accommodation market.
The report proposes that the proposed development is justified based on economic, community
and planning need and that it will provide for economic and community benefits. The basis for
these conclusions identified within the report includes:
Increasing short-term accommodation occupancy rates on the Sunshine Coast and in key
centres such as Noosa and Mooloolaba, are not being matched by other locations which
lack the diversity of facilities. The proposed development would introduce a modern,
alternative, short term accommodation facility to the Noosa Shire/Peregian Beach,
contributing diversity to the market and to the mix of visitors attracted to the Region.
... that there is insufficient need and demand to support a major large scale short term
accommodation facility in Peregian in light of major new developments emerging in nearby
locations, as well as the scale of holiday home options available and the overall number of
visitors to Peregian Beach, but that there is a niche market and need for boutique style
short term accommodation to cater for emerging and unmet needs for short term
accommodation in Peregian and Noosa Shire.
The proposed development would positively contribute to visitation and growth within
Peregian Beach, which would have flow on effects for local businesses and potentially the
range of services that can viably be provided for visitors and the local community alike.
... the proposed permanent residential and short term visitor accommodation facilities will
house potentially some 100 persons who would generate demand for convenience retail,
takeaway food, dining facilities, entertainment etc. The proposed development is adjacent
to and within walking distance of the core retail and lifestyle facilities of the Peregian Village
precinct.
The proposed development would also complement the mooted Digital Hub and community
centre redevelopment at Peregian, providing additional conference and meeting spaces as
well as short-term accommodation for business visitors to the Hub.
Residential development opportunities across the Noosa Shire are dwindling and land
supply is very limited. Thus, housing affordability in the Region and more particularly
Peregian Beach, has decreased as land prices have increased. The proposed
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development would provide some 26 residential dwellings within Peregian Beach
contributing to supply and choice within the Peregian area.
The Peregian Beach residential market is demonstrating significant growth in median
house and unit prices, reducing the relative affordability for residents seeking a Peregian
Beach lifestyle.
The proposed short term accommodation facilities would cater for a limited sector of the
overnight visitor market.
The proposed permanent residential component of the development will increase access to
choice in living and lifestyles for residents seeking a Peregian Beach living environment
with access to the Peregian Beach Village precinct.
The residential component also presents the opportunity for downsizing households to
enjoy the convenience of the Peregian lifestyle, whilst remaining within the Noosa and
Peregian Beach locality.
There is a clear gap in the provision of modern accommodation including hotel/motel type
facilities within the Noosa Shire. The subject site is conveniently and strategically located to
cater for visitors, businesses, workers and residents within Peregian Beach and would
contribute to the economic vitality of the locality.
Residential dwellings provided as part of the development would help to meet the Planning
Scheme goal of providing residential development which includes a variety of housing
types and higher densities in proximity to neighbourhood centres.
With regards to the applicant’s suggestion that residential development opportunities across the
Noosa Shire are dwindling and land supply is very limited, it is important to note Council’s
submission to the State Government in response to the Draft Regional Plan. As part of this
submission Council addressed the capacity of land within the Urban Footprint to accommodate
projected population growth. Noosa Council’s draft submission to ShapingSEQ notes:
Council has concluded not to support any changes to the Urban Footprint under the new
ShapingSEQ for reason that there is no need demonstrated currently for additional urban
land to be allocated to Cooroy, or any other part of Noosa Shire. Council has previously
outlined in this submission that it considers sufficient capacity exists in the current Noosa
Plan to accommodate the projected demand for dwellings until 2041.
The position of the applicant’s economic consultant conflicts with Council’s strategic review of
land capacity. Council’s review was based on land within the Urban Footprint however it did not
include land zoned Open Space Recreation when assessing the capacity to accommodate the
projected need for permanent residences.
Council also undertook a Housing Needs Assessment in March 2017 (Briggs & Mortar Pty Ltd) to
inform the preparation of a new Noosa Planning Scheme (the ‘New Noosa Plan’). Findings of the
assessment included a need for additional smaller residential dwellings. Smaller dwelling types
being one and two bedroom dwellings. Need was not established for large dwelling types (3+
bedrooms).
Stage 1 of the applicant’s proposal seeks to develop 26 dwellings, all of which contain three or
more bedrooms. The 2nd stage of the proposed development seeks to develop 32 units which
comprise one and two bedroom units. Of the 32 units only 12 contain kitchens and are
considered to be capable of providing permanent accommodation. Therefore, of the 58
dwellings/units proposed by the applicant only 12 meet the type of housing identified as a smaller
dwelling type.
Accordingly, it is considered that the proposal does not demonstrate overwhelming need for the
type of housing identified within the Housing Needs Assessment.
Furthermore, should there be an extended period between the construction of stage 1 and the
completion of stage 2, or if stage 2 were not to be commenced, an approval for this proposal
could result in a development which has no alignment whatsoever with the strategic intent for the
site or the identified need for smaller dwelling types.
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The Housing Needs Assessment also included a review of visitor accommodation. The review
identified that there will be continued growth with regards to visitor accommodation. At page 15
the review notes:
However, in the event of continued ongoing growth in total visitor nights in line with that
over the last decade, there was found still likely to be a further projected need for additional
tourist accommodation and visitor dwellings by 2036 which is unlikely to be able to be met
by dedicated tourism development. Tourism demand may therefore ‘spill over’ into resident
accommodation.
Recommendations from the Needs Assessment regarding Tourist Accommodation include:
Should growth in the tourist market continue as it has been on average over the last
decade, there would be ongoing demand for visitor and tourist accommodation of all types.
Some of this demand may be filled by increasing existing occupancy rates, some may be
filled by secondary dwellings, especially in the hinterland, some is likely to be filled by
retrieving resort units lost to permanent residents and some may be filled by further use of
the residential stock.
The submitted Economic Needs assessment was reviewed by Council’s external consultant.
Review of the economic needs assessment by Council’s consultant identifies that the
development will provide a product both in terms of traditional residential dwellings and short stay
accommodation that is not at the bottom of the current price points but is also not at the higher
end. The review identifies that due to the limited provision of the proposed type of visitor
accommodation, that a boutique accommodation facility will possibly have benefits for the
immediate region. Importantly the review also notes that the applicant has not demonstrated that
the type of low cost accommodation, outlined in the planning scheme as being preferable for the
site, is overwhelmingly deemed surplus to requirements.
Council’s consultant identifies that whilst the proposal is inconsistent with the zoning of the site
that there is assessed to be reasonable demand and limited comparable supply for what is
proposed.
However, the longer term implications for the site and the ability to provide low cost short stay
accommodation in the region are still a possible future concern in terms of a planning argument.
The loss of low cost, short stay accommodation zoned land is not adequately justified.
Importantly the report concludes that overwhelming demand has not been conclusively provided
for the types of facilities proposed on this site. Whilst it is accepted that there is some
demonstrated need and demand, from an economic perspective, the arguments and ability to
provide overwhelming need and demand is limited.
Traffic
The submitted Traffic Impact Assessment prepared by Pekol Traffic and transport includes the
following:
the proposed development is not predicted to significantly increase peak hour traffic
generation over the approved use;
the traffic movements associated with the development are not expected to have a
significant impact on the operation of the local road network and no additional upgrade
works would be required to mitigate the impact of the development.
The submitted report and traffic impact associated with the proposed development was reviewed
by Council’s external consultant. The consultant’s comments include:
From an overall traffic impact perspective, the proposed development is consistent with
previous allowances for traffic generated by the accommodation component of the site
The applicant has appropriately demonstrated that a 12.5m HRV (which is an appropriate
design vehicle) is able to satisfactory manoeuvre within and through the site. The proposal
would thus appropriately accommodate delivery vehicles and refuse collection vehicles.
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A number of issues have been raised with regards to the internal layout of the proposed
development. These issues include width of visitor parking bays, length of external car spaces,
pedestrian access to the hotel and conference centre and proposed siting for wheelie bins
associated with three dwelling units. It is considered that these matters could be addressed by
conditions.
Stormwater Quality & Quantity
The issue of Stormwater is divided into two parts, quality and quantity. The acceptable outcome
is a “non-worsening” in regard to the quality and quantity of stormwater released from the site
due to the development of the site. Council engaged a hydrology consultant to undertake a peer
review of the Covey Engineering Services Report. In regard to stormwater quality and treatment,
the consultant advised:
The water quality items have all been addressed and I am satisfied that the water quality
modelling and proposed treatment systems area appropriate.
The issue of water quantity has not been resolved specifically with regards to maintaining pre-
development peak flow rates. The applicant has been advised that on-site detention is required,
however they have submitted the on-site detention is not necessary and provided commentary
from an ecologist in support of this argument. It is noted that the IGA development was required
to provide on-site detention and that the Queensland Urban Drainage Manual suggests that
detention should be provided for sites with an ecological value in the lower third and central
portions of the catchment
The required detention methods could be addressed via the inclusion of reasonable conditions
and resolved by amended detailed designs submitted at Operational Works stage. However, this
is not preferable as it would be likely to result in layout changes.
Reverse amenity: Acoustic impacts from hotel and commercial development
An acoustic report was requested in order to assess the potential reverse amenity impacts
associated with the siting of proposed dwellings adjacent to the Peregian Hotel and the IGA
development. These reports were reviewed by Council’s external consultant who provided draft
conditions which address external façade treatments.
Bushfire
Assessment of the proposal’s ability to respond to and manage the threat from bushfire is an
important aspect to the assessment of this application.
There are a number of elements within the Noosa Plan which address the risk from a natural
hazard to a proposed use or development.
These elements are detailed below:
Strategic Framework:
1.7.12 Natural Environment Protection
a. Development in areas at risk from natural hazards is to be compatible with the nature
of the hazard so as not to place people, property, economic activity, social wellbeing
and the natural environment at risk.
b. Development is avoided in areas subject to natural hazards or where natural hazards
cannot be avoided, mitigation or adaptation measures are adopted taking into
account predicted frequency and severity of the natural hazard.
f. Development supports and does not unduly burden disaster management response
or recovery capacity and capabilities.
Overall Outcomes for the Eastern Beached Locality:
7.7.2 The overall outcomes sought for the Eastern Beaches locality are the following –
a. New uses and works are located, designed and managed to—
ii. maintain the safety of people and works;
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Natural Hazards Overlay Code:
13.30.2 The overall outcomes sought from the Natural Hazards Overlays Code are—
a. development in areas at risk from natural hazards is compatible with the nature of the
natural hazard so as not to place people, property, economic activity, social wellbeing
and the natural environment at risk;
b. development is resilient to natural hazard events by ensuring siting and design
accounts for and minimises potential risks of natural hazards to people and property;
c. development supports, and does not unduly burden disaster management response
or recovery capacity and capabilities;
h. for bushfire hazard areas—bushfire risk mitigation treatments are accommodated in a
manner that avoids or minimises impacts on the natural environment and ecological
processes
Specific Outcome 4 New Uses states:
The proposed use does not compromise the safety of people or property from bushfire.
There is a clear intent within the planning scheme that land use and development appropriately
manages the safety of occupiers/users of new development.
The proposal must ensure that persons accommodated within the development, associated staff
and visitors are not subject to an unreasonable level of risk associated with a natural hazard.
The applicant has provided a Bushfire Assessment against the Noosa Plan’s Natural Hazards
Overlay Code provisions for bushfire, which concludes that the relevant requirements can be
met.
However, the fire modelling provided by the applicant has demonstrated the site is subject to
Very High Potential Intensity with access to be provided through the 15m wide asset protection
area.
The asset protection area includes a 3m wide strip to be located in the proposed environmental
park area, to be dedicated to the crown. It is considered unreasonable to locate an asset
protection zone within a third party’s property as it unduly burdens the future land manager with
bushfire control for the development, including associated liabilities.
The applicant’s modelling of the potential fire-line intensity of Very High and flame length of 10m
means the buildings at the bushland interface will have to be built to the highest bushfire
classifications. The location of the water quality devices in the asset protection area further
compromise properties adjacent to the asset protection area due to the flammability of the
vegetation within these devices.
The location of the single access/egress area within the asset protection zone further comprises
the safety of people accessing the site in an emergency situation.
The applicant has not satisfactorily demonstrated the bushfire hazards associated with the
development of the site can be adequately addressed with the current configuration.
Biodiversity Overlay Code:
The development site is not mapped as containing a Biodiversity Overlay area however the
adjacent land to the west, Noosa National Park, contains Environmental Protection Area as
mapped by the Biodiversity Overlay. The development has the potential to impact on the values
associated with the National Park.
The Department of National Parks, Sport and Racing has requested the development
accommodate appropriate fire mitigation measures including appropriate buffer and access for
urban fire appliances.
The western portion of the site contains a remnant Melaleuca wetland and abuts the sedge
land/heathland in the National Park. These features contain suitable habitat for threatened
species with distinct and particular habitat requirements. This area was to be allocated as
Council reserve in previous approvals.
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Conditions could be applied to a development approval requiring the environmentally significant
portion of the land be conserved in perpetuity, via land dedication, similar to previous approvals.
Development impacts on biodiversity values have not been adequately quantified by the
applicant. There is concern the stormwater quality discharged into the wetlands will have the
potential to alter the biophysical properties of the receiving environment and thus alter the unique
habitat requirement of the threatened species.
The applicant has not sufficiently demonstrated the development will not adversely impact on the
specialised habitat for threatened species through discharge of stormwater through the wetland
areas and National Park.
4. CONSULTATION
IDAS Referral Agencies
The application was referred to the following IDAS Referral Agencies:
Concurrence
SARA – Concurrence Agency
The Department of Infrastructure, Local Government and Planning (DILGP) is a concurrence
agency in accordance with:
Schedule 7, Table 2, Item 22—Land contaminated because of unexploded ordnance
Schedule 7, Table 3, Item 11—Land contaminated because of unexploded ordnance
DILGP’s response was received on 14 February 2017 did not object to the proposal and
contained no requirements.
On 9 June 2017 a letter was received from the applicant including the following advice:
A Decision Notice was issued by the Department of Infrastructure, Local Government &
Planning (DILGP) on 14 February 2017 and we wish to formally make representations in
relation to their response.
On behalf of the applicant and in accordance with s320(1) of the Sustainable Planning Act
2009 (SPA), we formally stop Council’s Decision Making Period to provide more time to
make further written representations with DILGP.
On 28 August a further letter was received from the applicant seeking to recommence the
decision making period.
4.1. Other Referrals
The application was forwarded to the following internal Council specialists:
Strategic Planning
Engineering
4.2. Public Notification
The application was publicly notified for 15 business days in accordance with the Sustainable
Planning Act 2009. The applicant provided a Notice of Compliance on 27 April 2017, certifying
the advertising was correctly undertaken. 415 submissions, comprising 406 properly made
submissions, 8 not properly made submissions and 1 invalid submission, were received by
Council. 202 properly made submissions objected to the proposal and 204 properly made
submissions supported the proposal.
46 properly made submissions objecting to the proposal were made by persons with an address
outside of Peregian Beach, 19 of these were from people from Peregian Springs and 10 were
from Marcus Beach.
142 properly made submissions supporting the application were made by people with an address
outside of Peregian Beach, 27 of these were from Coolum Beach, 10 were from Peregian
Springs and 10 from Sunshine Beach.
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Submissions were received from a number of community groups and other bodies objecting to
the development, including the Peregian Beach Community Association, Peregian Beach
Community Kindergarten, Veggie Village Community and Peregian Beach Community House.
The Peregian Beach Business Association provided support for the application.
The following table provides a summary and assessment of the issues raised by submitters.
Objections
Issues Comment
Natural Environment
Will have detrimental effect on pocket rainforest and It is considered that the development
freshwater creek footprint of the site does not contain
Excessive fill significant environmental values however it
No mention of creek or watercourse that runs through is noted that the site abuts a National Park.
the site Consideration of discharge of storm water
Gabion wall will be on the bank of the watercourse from the site into the National Park has
Development will result in changes to the natural been considered in the assessment of the
drainage of the site and disturbance of the wetland application
system
Diminished views across the National Park to Mt Cooroy
Site abuts a National Park
No mention of the impact for the vulnerable Wallum
Froglet, Wallum Rocketfrog, Wallum Sedgefrog nor the
impact on wetland heathland and sedgeplain which is
habitat for vulnerable Ground Parrot recorded less than
500m from the site
IDAS form 7 not properly completed as it did not
acknowledge that there is a watercourse on site
Character
Urban sprawl land set aside for significant community It is acknowledged that the character of the
purpose proposed development is not consistent
Private road with tightly spaced garages will be with the surrounding area and other
uncomfortable thoroughfare between supermarket and multiple dwelling unit development within
Rufous Street Peregian Beach. This includes concerns
Visitor accommodation not suited to casual coastal with the interface of the development with
character Rufous Street.
Will feel like another suburb and endanger unique
character
Proposal turns its back on Rufous Street and the
laneway and is not consistent with the Rufous Street
master plan
Village character of Peregian Village will be ruined
Demand on infrastructure due to the density of the
proposal
Not in keeping with village atmosphere
Not in keeping with Rufous Street character
Will result in light pollution
Traffic and Car Parking
Should be no adverse impact on traffic The impact of the proposed development
Pedestrian crossings will impact on traffic on the surrounding road network is
Pedestrian crossing should be moved to the north and consistent with previous allowances for
develop construct pedestrian overpass traffic generated by the accommodation
Impact car parking in Rufous Street component of the site within the previous
Traffic conflict with Stage 1 supermarket approval.
Importation of fill will create traffic issues associated A number of issues have been raised with
with trucks regards to the internal layout. These
matters could be addressed by conditions.
Insufficient car parking provided
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Issues Comment
Access road is too narrow to cope with turning vehicles
and becomes grid locked
There will be increased noise associated with traffic on
David Low Way
Increased traffic in Sandpiper Lane without any
upgrades
Truck movement
During construction will be dangerous to nearby land
users
Insufficient visitor car parking
Substantial variation on what has previously been
approved
Land Use
Object to housing estate Agreed – the proposed land use is not
Lack of visitor accommodation supported and is included in the reasons
Would be better to have aged care facility with open for refusal
space parkland
Visitor Accommodation Type 4 is not consistent with
Open Space Recreation
Does not protect site for low cost visitor accommodation
Unlikely that Stage 2 will be acted upon
Does not meet DEO Outcome J
Does not comply with the Eastern Beaches Locality
Code
There is need for low cost holiday accommodation and
not permanent housing
No recreational opportunities for community
Conflict with the Noosa Plan
Built Form
Density, site cover, gross floor area and building heights Agreed – there are a number of aspects of
are excessive the proposed built form which are not
Inappropriate setbacks supported and included in the reasons for
Unimaginative architecture refusal
Insufficient landscaping area
Provision of services external to the site (water meter,
underground infrastructure for electricity) - should be
provided on site)
Insufficient solar access to linear houses
Secondary dwelling can be cut off from main dwelling
and requires an additional car space
GFA should be calculated relative to each proposed
new lot
Insufficient setback to Rufous Street – 2 metre setback
with 7 metres of building height on top of fill
House will overlook kindergarten
Where is the obligatory green space/park facilities
Amenity
Noise from IGA roof plant will be detrimental to This has been reviewed by Council’s
residents of the hotel/motel external acoustic consultant who has
Noise from the hotel roof will be detrimental to residents identified that construction methodologies
of the linear dwellings can overcome these concerns.
Other It is noted that Stage 1 of the proposal only
Staging of development is not appropriate provides for permanent residences and
Staging should be reversed that if Stage 2 is not acted upon that an
Approval period should be short and not extended approval would result in only a multiple
Not commercially viable housing development.
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Support
Issues Comment
Creates employment It is not agreed that this is a suitable site
Improves accommodation options for Peregian for the proposed development or that the
Maintains Peregian culture application has adequately demonstrated
Cosmetic improvement of land an economic need for the proposal.
Improves accommodation/housing choice It is acknowledged that positive economic
Compliments works undertaken by Council on westerns benefits would occur during the
side of David Low Way construction phase of the development.
Ongoing economic benefit to local
Will bring more visitors to Peregian Beach
businesses would be a result of visitor
Helps local businesses and local economy
accommodation and permanent residents
Cosmetic improvement of the land The central location of the site with regards
Development is attractive to facilities and services is noted however
There is a need for this design and land use this is not considered to justify overriding
Will not impact visual amenity the planning scheme.
Adequate parking and no impact on traffic
Addition of conference facilities
Suitability of the site
Connectivity to surrounding land uses
Proximity to public transport
Enables people to work from home
5. CONCLUSION
The application for a Development Permit for Material Change of Use of Premises - Multiple
Housing Type 4 Conventional (38 units) Visitor accommodation Type 4 Conventional (12 units)
and Reconfiguration of a Lot (1 Lot into 29 Lots) for 215 David Low Way Peregian Beach is
recommended for refusal. The application has not demonstrated overwhelming community need
to justify overriding the planning scheme. The development is not consistent with the Desired
Environmental Outcomes and the Eastern Beaches Locality Code as the development does not
retain low cost visitor accommodation on the site. Furthermore, the application includes
additional dwelling units which have not formed part of the application and the application has not
satisfactorily demonstrated that measures to manage the risk from bushfire can be adequately be
addressed with the current configuration.
Departments/Sections Consulted:
Chief Executive Officer Community Services Corporate Services
Executive Officer Community Development Financial Services
Executive Support Community Facilities ICT
Libraries & Galleries Procurement & Fleet
Local Laws Property
Waste & Environmental Health Revenue Services
Executive Services x Environment & Sustainable Development Infrastructure Services
Community Engagement Building & Plumbing Services Asset Management
Customer Service x Development Assessment Buildings and Facilities
Governance Economic Development Civil Operations
People and Culture Environmental Services Disaster Management
x Strategic Land Use Planning Infrastructure Planning,
Design and Delivery
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Page 54 of 128
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
Page 55 of 128
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PLANNING & ENVIRONMENT COMMITTEE MEETING AGENDA 10 OCTOBER 2017
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\ | \ \ \ ° | ESSENCE OF PEREGIAN BEACH
\ / (i KON j DEVELOPMENT
\ \\ ———— of , | THOMCO (NO 2087) PTY LTD
a a ——e Lot 3 on sranseso
. LOT RECONFIGURATION PLAN
date 28/03/2047 drown DDT scale was
MATERIAL CHANGE OF USE DEVELOPMENT APPLICATION seawines ==
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