Development Assessment Report

Toondah Harbour Priority Development Area (THPDA)

Proposed interim use - car park

233 Middle Street Cleveland

14 February 2018

Executive Summary

Redland City Council (RCC) are seeking approval for an Interim Land Use (car park) to cater for overflow parking for visitors going to North Stradbroke Island during peak holiday periods and/or festivals/events.

Previously RCC have utilised two grassed areas located at 233 Middle Street Cleveland, more specifically Lot 19 on SP115544, for overflow parking which prior to the area being included in the THPDA was self-assessable development as a temporary use under the Redlands Planning Scheme.

The area used would be approximately 2000m2 in ‘Area 1’ and 1400m2 in ‘Area 2’ and the number of car parks would not exceed 100 and 60 respectively.

Area 1 adjoins residential development and a buffer zone is included in addition to the existing 5m wide public walkway that runs between the boundaries to negate any potential adverse amenity impacts.

Area 1 and 2 are located in Precinct 2 – Residential of the THPDA Development Scheme. The proposed development necessitates a development application for Material Change of Use – Interim Land Use (car park). RCC understands that notification of this application may not be required.

Having regard to the THPDA Development Scheme, current market conditions, and other external influences it is RCC’s view that the use of the site for the proposed Interim Land Use (car park) use is an appropriate use of the site. The use is a continuation of a previous temporary use that did not require development works or approval.

Contents 1. Summary Details ...... 4 1.1. Property Summary ...... 4 1.2. Planning instrument details ...... 4 1.3. Application Summary ...... 4 1.4. Applicant Details ...... 4 2. Site Analysis ...... 5 2.1 Site Location ...... 5 2.2 Photos – site and surrounds ...... 9 3. Background ...... 13 3.1 Development application history subject site and surrounds ...... 13 4. Development Proposal ...... 14 4.1 Proposal Summary ...... 14 5. Key Considerations ...... 14 6. Development Scheme Assessment ...... 15 6.1 Toondah Harbour Development Scheme ...... 15 6.2 Interim Use ...... 15 6.3 Use Definition ...... 15 6.4 Category of Development ...... 15 6.5 Infrastructure Charges ...... 15 7. Land Use Plan ...... 15 7.1 Vision Statement ...... 15 7.2 PDA wide criteria – Urban Design ...... 16 7.3 PDA wide criteria - Sustainability ...... 17 7.4 PDA wide criteria - Street and movement network ...... 17 7.5 PDA wide criteria - Natural environment ...... 19 7.6 PDA wide criteria - Open space ...... 20 7.7 PDA wide criteria - Community safety and development constraints ...... 20 7.8 PDA wide criteria - Service infrastructure...... 21 7.9 Precinct 2 Intent and preferred land uses ...... 21 8. Conclusion ...... 23 9. Attachments ...... 23

1. SUMMARY DETAILS

1.1. Property Summary

Address 233 Middle Street Cleveland RPD Lot 19 on SP115544 Easements Storm water/Drainage Owner Redland City Council - Property Services Unit Area 7587m² total Exiting land use miscellaneous storage

1.2. Planning instrument details

Priority Development Area Toondah Harbour Development Scheme Toondah Harbour Development Scheme Zone Residential Precinct Two (2) Toondah Harbour Preferred use Dual occupancy/multiple dwelling/residential care facility DA history Nil (on Lot 19 on SP115544)

1.3. Application Summary

Description Interim Land Use (car park) Approval sought Material change of use Notification TBA

1.4. Applicant Details

Applicant Redland City Council – Property Services Unit PO Box 21 CLEVELAND QLD 4163

Contact Damien Jolley (Acting Senior Property Officer) p: 3829 8981 e: [email protected]

2. SITE ANALYSIS

2.1 Site Location

The site is known as 233 Middle Street Cleveland and described as lot 19 on SP115544 and located within Precinct 2 of the Toondah Harbour PDA. The site is an irregular shape of 7587m2. The site consists of mostly grassed open space with the only improvements being a 80m2 shed and 250m2 currently unused greenhouse type building.

The site is bordered by residential units on the western side, car park on the eastern side, office buildings on the northern boundary and is also bordered by a separate lot consisting of mangroves that effectively splits the site down the middle.

Figure 1 Location of subject site

Figure 1a Location of Toondah Harbour PDA

Figure 1b Toondah Harbour PDA precincts

Figure 1c subject site area 1 and area 2

2.2 Photos – site and surrounds

Figure 2 Access to Area 2 via existing car park

Figure 3 Internal view of access to area 1

Figure 4 Internal view Area 1

Figure 5 Buffer between Area 1 and residential area

Figure 6 Access to Area 2 via existing carpark

Figure 7 Internal view of access to Area 2

Figure 8 Internal view Area 2

Figure 9 Internal view Area 2

Figure 10 Approximate locations photos taken

3. BACKGROUND

3.1 Development application history subject site and surrounds

The site formed part of the marine research facility and office space, which included lots 33- 35 on C618 and Lot 4 on SL12281, that was owned and operated by the Commonwealth Scientific and Industrial Research Organisation.

The site was sold in April 2012 to Redland City Council and the buildings on lots 33-35 on C618 and Lot 1 on RP145396 were occupied/used by Redland Water as offices.

On 7 October 2015 approval was obtained from Economic Development QLD (EDQ) for part of the buildings to be used for a temporary educational establishment (EDQ ref DEV2015/711) and Redland Water continue to use/occupy part of the buildings along with the education provider (the Australian Industry Trade College).

4. DEVELOPMENT PROPOSAL

4.1 Proposal Summary

The proposed use will establish Interim Land Use (car park) for:

 Temporary Car parking during peak periods - maximum of 50 days per annum.

The use will be a continuation of a temporary use under the Redlands Planning Scheme for peak periods where additional car parking is considered necessary (refer Attachment D of application). The periods may include:

 Australia Day  Anzac Day  Labour Day  Queen’s Birthday  Easter holiday period  Christmas holiday period  Festivals/other events

The use will have little to no adverse impacts on adjoining properties

5. KEY CONSIDERATIONS

The proposed use – being a temporary car park – is not included within the ‘preferred land uses’ within Precinct 2 THPDA Development Scheme Residential zone, however the use is proposed as interim use only. It is in no way intended to compromise the development of the site in line with the ultimate intent for the Precinct under the Development Scheme.

There is existing permanent car parking adjoining the site that would provide gated access to both Area 1 and 2.

Limited works will be required to use the areas for temporary parking. The works may include installation of temporary fence (tiger mesh) signage and maintenance of existing driveway crossovers which are bitumen on to gravel. Management of the areas during peak periods would be undertaken by Council.

Established pedestrian connections will be utilised and any improvement works can be readily removed at the expiry of the activities.

It is expected that appropriate conditions will be put in place on any approval granted which limit the operation of the activities to a temporary period. This permits the parking area to remain in good condition and regenerate as necessary between use periods.

Overall, given the existing approved car parks on adjoining sites; market and environmental considerations impacting on future development in line with the Development Scheme; and the ability to limit temporary activities through the setting of appropriate conditions - it is considered that the proposed Interim Land Use (car park) is an appropriate use for the site and would not be inconsistent with reasonable expectations of the community.

6. DEVELOPMENT SCHEME ASSESSMENT

6.1 Toondah Harbour Development Scheme

The proposed development has been lodged pursuant to the Economic Development Act 2012 and the THPDA Development Scheme.

6.2 Interim Use

An interim use is a land use that, because of its nature, scale, form or intensity, is not an appropriate long term use of the land. Interim land uses may occur if appropriately developed and operated and where located in areas which will not compromise the precinct provision in the longer term.

6.3 Use Definition

Car park - Premises used for parking vehicles where the parking is not ancillary to another use.

6.4 Category of Development

Material change of use.

6.5 Infrastructure Charges

No infrastructure charges would be applicable as the use is temporary.

7. Land Use Plan

7.1 Vision Statement

Toondah Harbour is a key waterfront destination within Cleveland, Redland City and South East Queensland. Development establishes a strong community identity which benefits from the indigenous heritage and amenity of Moreton Bay and a mixture of residential, retail, tourism, commercial and community uses. As the principal point of departure and arrival for ferry services between the mainland and North Stradbroke Island, Toondah Harbour is "the gateway to Straddie". Water based transport and boating facilities are provided including separate terminals for passenger and vehicle ferries, a marina, boat industries and marine services.

The harbour is also utilised for the launch of recreational boats from trailers. Development will revitalise the ferry terminal and improve the transport function by better integrating ferry and bus services and managing car parking. Development establishes Toondah Harbour as a high quality urban environment that capitalises on the high amenity of Moreton Bay and provides opportunities for a range of activities including outdoor dining, tourism facilities, residential, commercial development, marina and a public beach. Development complements the Cleveland CBD and its revitalisation and provides appropriate infrastructure that meets market expectations for safety, comfort, convenience, information and service delivery.

The functioning of existing parks is protected and there is no net loss of public open space within the Toondah Harbour PDA, including GJ Walter Park. New areas of public open space enhance opportunities to enjoy the waterfront and Moreton Bay and support aboriginal stewardship and reconciliation. Pedestrians, cyclists and vehicles are afforded safe and efficient movement options which connect with public transport, the waterfront and community focal points. Adequate parking is provided to meet the scale of development and anticipated future growth. Development respects and values marine and land based ecology and seeks to protect matters of ecological significance.

Response: The proposed development will provide additional management of car parking issues during peak periods to support the ongoing vision of Toondah Harbour being the ‘gate way to Straddie’ in the short term. The proposed development will not impact on future development of the site.

7.2 PDA wide criteria – Urban Design

The form, type and arrangement of buildings, streets and public spaces support development and urban design outcomes which:

 create a community which is compact and walkable, with development generally within a 5 minute walk (400m radius) of a community focal point. A community focal point may include a park, public transport stop, active retail use, community facility or similar  deliver building heights which are generally in accordance with the indicative building heights identified in Map 4 and are compatible with surrounding development  create an active place characterised by a high quality public realm and safe pedestrian areas which encourage community interaction and support healthy lifestyles  provide built form which supports a mix of land uses that support activity during the day and at night  appropriately interfaces with existing residential development within and adjoining the PDA boundary and mitigates impacts from density or height by providing: o visual buffers and setbacks or graduation in height o appropriate access arrangements, and o complementary uses  ensure all buildings address the street, reinforce streetscapes and integrate with the public realm, with service areas and car parking located to the rear of buildings, in particular promoting building design which reinforces Middle Street as the main entrance and gateway into the PDA  enhance the relationship with the waterfront  contribute to an articulated streetscape along key pedestrian and street connections  conserve local site characteristics, settings, places of heritage significance, landmarks, breezes and views  uses built form and natural features to provide specific identity, which complements existing local character and cultural heritage  maximise north facing orientation of buildings and views to parks and Moreton Bay  provide a safe environment through the application of Crime Prevention Through Environmental Design (CPTED) principles such as passive surveillance of public spaces and activated street frontages  ensure adequate visual and noise amenity  provide for advertising devices which are in accordance with standards set out in the planning

 ensure sites have sufficient dimensions to accommodate buildings, landscaping, parking, access and circulation areas  provide opportunities for Aboriginal stewardship and reconciliation.

Response: The proposed use will use grassed open space that adjoin existing car parks and will require minimal improvement. The proposed development will not impact on future development of the site and it is considered that there are no urban design outcomes to be addressed for the Interim Land use as it compliments existing adjoining land uses.

7.3 PDA wide criteria - Sustainability

Development supports sustainable outcomes which:

 ensure landscaping and building design are of a high standard, providing adequate safety, privacy, comfort and responsiveness to the sub-tropical climate and coastal hazards  ensure development has regard to environmental and landscape values  ensure ecosystems and natural physical processes are maintained and incorporated as features in the overall urban form  minimise potable water usage where possible and enhance the visual amenity of the locality and streetscape  utilise energy efficient, climatically responsive design including appropriate solar orientation, shading, cross ventilation, natural lighting and passive cooling techniques .

Response: The proposal will have little to no additional impacts on the site and is a continuation of a previous temporary use under the Redlands Planning Scheme. The proposal does not change the existing landscape. The proposed development will not impact on achieving future sustainable outcomes.

7.4 PDA wide criteria - Street and movement network

Development delivers a well-designed street and movement network which:

 creates an attractive and appealing place for residents, workers and visitors, with a street pattern which facilitates safe and efficient movement of private vehicles, buses, cyclists and pedestrians and is permeable, legible and connected to surrounding areas  ensures development does not unreasonably constrain future provision of public transport infrastructure and does not adversely impact on the function or operation of existing or future public transport corridors and ensures potential public transport routes are constructed to a standard appropriate to accommodate these services, including footpaths and pavements  promotes physical and visual connectivity through the site with connections which align with the mixed use node, public transport services and access to ferry services  has regard to location and design of passenger and vehicle ferry parking requirements, including overnight and worker spaces and car queuing requirements which seek to minimise conflicts between different users of the site by locating car queuing areas away from residential and mixed use activity  provides efficient and safe street and road networks for all users and appropriately separates pedestrian, vehicle, trailer and bus traffic  connects to and takes into consideration impacts to existing networks while ensuring acceptable levels of amenity and minimising negative impacts of through traffic

 provides a safe and pleasant movement network for pedestrians, cyclists and vehicles that has a clear structure and maximises walking, cycling and public transport effectiveness  supports improvements to pedestrian and cycle connections within the site which link to the broader network and support movement to key district and local destinations such as shops, schools, parks and community facilities which may be external to the PDA  provides a safe and pleasant environment through lighting, pavement treatment and materials, clear sight lines and landscaping and retains existing mature trees, where possible, in streets  establishes a waterfront promenade which contributes to the public realm, has an appropriate interface with adjoining development and enhances the public's access and enjoyment of the waterfront and Moreton Bay  delivers specific road connections detailed in the Precinct provisions  provides parking spaces generally in accordance with the Redlands Planning Scheme and makes adequate provision for onsite car and trailer parking  locates offsite parking generally in accordance with Map 2 - Structure plan  ensures car parking areas are appropriately designed, not visually dominant and do not detract from the building's relationship with the street whether at-grade or in a multi deck configuration. On key pedestrian and movement linkages and within the mixed use node, car parks are suitably sleeved by active frontages or located away from the public realm  upgrades existing footpaths along Middle Street, Wharf Street and Shore Street to be a high quality shared path suitable for both pedestrian and cyclist movement  delivers a north-south cycle path along Wharf Street and improves the connectivity of the existing shared pedestrian cycle path along the western boundary of the PDA to create linkages to the south and into Middle Street  improves pedestrian facilities and connections to bus stops on Emmett Drive È provides for a pedestrian and cycle link into the existing Eddie Santagiuliana Way shared path, connecting to the Oyster Point park and ferry terminals  supports provision of on-road cycle services where appropriate and has regard to intersection treatment requirements  provides end of trip facilities for pedestrians and cyclists, including secure undercover bicycle storage facilities, showers and lockers are to be provided as part of development.  provides appropriate levels of access to the marina and associated facilities

Response: Traffic counts undertaken for vehicles travelling on Middle Street between Passage and Wharf Street, being the main access to Toondah Harbour, showed an average increase of 8 vehicles per day for a 7 year period. It is not envisioned that the proposed use will create any substantive increase in traffic movement given the existing peaks associated with utilisation of the ferry facility.

It is anticipated that the interim car park use will assist in reducing traffic impacts to adjoining residential areas by providing additional parking closer to the ferry facility. This is consistent with the intent of the scheme in complimenting the transport orientated elements of the area.

Existing vehicle and pedestrian networks will be used. The proposed development will not impact on future development of the site.

Figure 11 Ingress/egress to subject area

7.5 PDA wide criteria - Natural environment

The design, siting and layout of development has regard to the environment and:

 seeks to first avoid, then minimise and mitigate impacts arising from development within the PDA to sensitive ecological values or Matters of State Environmental Significance within and adjoining the PDA11, including koala habitat, intertidal mudflats, mangroves, seagrass beds and fisheries  seeks to achieve a net gain in koala and marine habitat through the use of compensatory offsets  establishes vegetated corridors through the PDA which support wildlife habitat, safe fauna movement and open space connections between community focal points  incorporates landscaping with endemic species with a preference towards retaining existing vegetation where possible  utilises planting strategies which are site responsive and reflect the subtropical nature of South East Queensland  maintains and improves water quality and the functioning and characteristics of the existing hydrological network (including surface and groundwater interactions) and addresses overland flow paths  minimises adverse impacts on receiving waters and appropriately manages stormwater including use of total water cycle management and water sensitive urban design principles.

Response: The proposed development will place no additional environmental impacts on the site given the temporary nature of the use and it being a continuation of a previous temporary use under the Redlands Planning Scheme. The proposed development will not impact on future development of the site.

It is considered that the natural overland flow of storm water will not be disrupted or cause adverse impacts on adjoining properties due to the topography of the subject site. The absence of hardstand areas also reduces any concentration or redirection of run-off from the site.

It is considered that there will be no adverse impacts on the shoreline and mangroves adjoining the subject area as a buffer zone will be imposed in accordance with the parking areas within the layout. That is no vehicle parking is proposed immediately adjacent to any adjoining boundaries.

7.6 PDA wide criteria - Open space

Development delivers parks and civic spaces which:

 protects the functioning of existing parks and ensures no net loss of public open space  protects the recreational function of GJ Walter Park as an area of open space  provide for multiple purposes and uses including recreational, sporting, ecological and stormwater management functions  contribute to the achievement of an integrated, high quality open space. network that caters for a variety of recreation functions and experiences to meet the needs of residents and visitors  provide opportunities to connect to open space areas within and adjoining the PDA and delivers parks identified in Map 2 - Structure plan  provide opportunities for the community to engage with the heritage and coastal habitats of Moreton Bay through new and improved areas of waterfront public open space  are accessible for all users  ensures the waterfront promenade is designed to contribute to the open space and provide opportunities for the public to access and enjoy the waterfront  incorporate existing natural features to the greatest extent possible having regard to the achievement of natural environment criteria in Section 3.4.4  are landscaped to assist in creating neighbourhood identity and wayfinding and link park areas in the PDA through vegetated corridors planted with native flora  are designed and embellished to suit their anticipated use  incorporate appropriate erosion and sediment control techniques  may act as buffers between residential development and incompatible uses  promote innovative and efficient use of energy and water in open spaces.

Response: The proposed use has no impact or loss of on existing open space. The proposed development will not impact on future development of the site.

7.7 PDA wide criteria - Community safety and development constraints

Development employs a risk management approach and will:

 be sited, designed and constructed to avoid, minimise or withstand the incidence of a development constraint  mitigate impacts from erosion prone areas  mitigate impacts from contaminated land  minimise soil erosion and siltation during construction

 ensure that people and property are safe from potential hazards including acid sulfate soils, coastal hazards, flooding, bushfire and landslide13 through assessment of risk and avoiding or mitigating adverse impacts  have regard to the projected impacts of a variable climate  manage and minimise noise from transport corridors  have regard to maritime uses within the PDA and will mitigate impacts from noise, dust, light or odour through design and siting of development, avoiding the use of noise barriers  minimise adverse impacts on amenity during construction  ensure stormwater runoff at the PDA boundary does not exceed that which presently exists, and there is no net worsening of flood conditions at the PDA boundary.

Response: The proposed development is considered to have no impacts or increase in relation to Community safety and development constraints. The proposed development will not impact on future development of the site.

Similar to the response for the natural environment, it is considered that the natural overland flow of storm water will not be disrupted or cause adverse impacts on adjoining properties due to the topography of the subject site. The absence of hardstand areas also reduces any concentration or redirection of run-off from the site.

7.8 PDA wide criteria - Service infrastructure

Development will protect existing or planned trunk infrastructure and ensure infrastructure and services are:

 provided in a timely, orderly, integrated and coordinated manner to support urban uses and works  available or capable of being made available (including key infrastructure such as roads, public and active transport, water supply, sewerage, drainage, park network, community facilities, energy and telecommunications)  designed to allow for future developments in information technology  located and designed to maximise efficiency and ease of maintenance.

Response: The proposed development does not require any service infrastructure and will not impact on any future requirements.

7.9 Precinct 2 Intent and preferred land uses

Precinct 2 will accommodate predominately residential development which establishes a compatible continuation of existing suburban development to the north and separation from conflicting ferry and marine industry uses to the south in Precinct 3 through use of natural features, greenspace and transport corridors.

Development in Precinct 2 will ensure urban design and land uses:

 provide a diversity of housing types  provide for a koala corridor as indicated in Map 2 which also acts as a linear buffer between Precinct 1 and Precinct 2 and enhances opportunities to interact with koala habitat areas  provide for a connection between Wharf Street and the extension of Emmett Drive  provide for a new upgraded intersection at Wharf and Middle Streets.

Preferred land uses

 dual occupancy  multiple dwelling  residential care facility.

Figure 12 Subject site Precinct 2

Response: The site is located in Precinct 2 and the proposed development is for the site to be used temporarily for overflow car parking for a maximum of 50 days annually with no or limited works required. The use will not compromise the ultimate development of the site and conditions limiting the duration of the use by both time or future approval/s should be included in any development approval.

8. CONCLUSION

Approval for the Interim Land Use (car park) for over flow car parking will alleviate the demand lawful parking for visitors to North Stradbroke Island during peak periods including school holidays and festivals.

The interim use is clearly in the interests of the local community and visitors to NSI by providing additional car parking to mitigate the impacts of that parking further from the ferry terminal.

It is not considered that the use would in any way compromise the future development of the site. 9. ATTACHMENTS

Attachment A – car parking layout Attachment B - Title search and easement document Attachment C – Survey plan Attachment D – Schedule of dates Attachment E - Contaminated land and environmental management register search