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iiiSPOT: #75952528 (MS Word) – The Spit Master Plan Implementation (Key Development Sites) amendment of 14

The Spit Master Plan Implementation (Key Development Sites) amendment

For approval to proceed to public consultation

ITEM 3 – ATTACHMENT E – Page 1 of 14

788th Council Meeting 6 May 2020 Planning and Environment Committee Meeting 29 April 2020

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Table of contents Item 1: Strategic framework

Item 2: The Spit Master Plan elements overlay code

Item 3: Zoning change and zone codes

Item 4: Tables of assessment


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Item 1: Strategic framework

Summary Include appropriate assessment benchmarks for the key development sites.

Explanation The key development sites will be included in two zones in City Plan: (1) Major tourism zone (The Spit northern, southern and eastern precincts); and (2) Waterfront and marine industry zone (The Spit marine industry precinct).

City officers note that currently under City Plan’s Strategic framework, the Major tourism zone is a non-urban area. Minor changes have been made to the Strategic framework to ensure the new major tourism zone precincts are urban areas, whilst maintaining other Major tourism zoned areas throughout the City as non-urban, consistent with current policy. It was important for these areas to be urban areas in City Plan, given the master plan outcomes for the key development sites are for urban activities. To facilitate this change, land included within the Major tourism zone precincts are now identified as part of “The Spit tourism area” for the purposes of the Strategic framework. To create consistency across the amendment, the remaining land included within the Waterfront and marine industry zone are now identified as part of “The Spit marine industry area”. Appropriate assessment benchmarks have been included throughout the Strategic framework to give effect to the outcomes of the master plan and to provide a line of sight to the zone codes and overlay. To reflect the changes to the Strategic framework, the Strategic framework maps 1, 2 and 5 have also been updated.

State interests considered Ministerial direction The changes comply with Ministerial Direction to the Gold Coast City Council under Section 26 of the Planning Act 2016, by including appropriate assessment benchmarks for each key development lot. The Spit Master Plan The assessment benchmarks have been drafted having regard to the city wide strategies and The Spit Master Plan. State Planning Policy, July 2017 No State interests in the State Planning Policy, July 2017 are considered relevant to these changes. See Item 2 and 3 for detailed state interest assessment on the assessment benchmarks, changes to the strategic framework are considered consequential to the changes in the zone and overlay codes. South East Queensland Regional Plan 2017 (ShapingSEQ) No State interests in ShapingSEQ are considered relevant to these changes. See Item 2 and 3 for detailed state interest assessment on the assessment benchmarks, changes to the strategic framework are considered consequential to the changes in the zone and overlay codes.


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Item 2: The Spit Master Plan elements overlay code

Summary Introduce a new The Spit Master Plan elements overlay and overlay code to regulate built form and public space/realm elements as identified in The Spit Master Plan.

Explanation The Spit Master Plan elements overlay and overlay code is a necessary requirement to ensure appropriate assessment benchmarks relating to built form and public space/realm are regulated to deliver the unique characteristics of amendment area, as referenced in The Spit Master Plan. Including these provisions in an overlay ensures, to the extent there is any inconsistency with other codes, the outcomes of the overlay code prevail.

City officers note that the public realm elements identified in this overlay are to:

(a) be delivered in accordance with State Government requirements as set out in the relevantDevelopment Agreement;

(b) remain in either State Government or private ownership; and(c) not become trunk infrastructure.

Consequential changes have been made to give effect to the new overlay and overlay code.

State interests considered Ministerial direction The changes comply with Ministerial Direction to the Gold Coast City Council under Section 26 of the Planning Act 2016, by including appropriate assessment benchmarks for each key development lot.

The Spit Master Plan The assessment benchmarks have been drafted having regard to the city wide strategies and the big picture strategies in the master plan.

State Planning Policy, July 2017 State interests relevant to this change include:

Guiding Principles Drafting of the overlay code focuses on the delivery of outcomes and uses positive language to respond the outcomes of The Spit Master Plan. Where necessary, prescriptive language has been used to ensure the outcomes of The Spit Master Plan are expressed to promote confidence to the community and developers about the expected development outcomes for the area.

Liveable Communities The overlay code generally relies upon: • city wide design principles that have been endorsed as part of the Our City Our Plan amendment

package (i.e. Major update 2 and 3 amendment) to the City Plan and the Site context and urbandesign planning scheme policy; and

• existing development provisions from the other zone codes in the City Plan; and• new development provisions endorsed as part of the Our City Our Plan amendment package.

Specific changes have been made to these principles to ensure the outcomes of the Master Plan are generally delivered. As such, the state interest for Liveable Communities is considered to be met.

South East Queensland Regional Plan 2017 (ShapingSEQ) No State interests in ShapingSEQ are considered relevant to these changes.


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Item 3: Zoning change and zone codes

Summary Introduce new zone precincts into the Major tourism zone and Waterfront and marine industry zone.

Explanation The key development sites will be included in two zones in City Plan: (1) Major tourism zone (The Spit northern, southern and eastern precincts); and(2) Waterfront and marine industry zone (The Spit marine industry precinct).

The Spit Master Plan Area (the master plan area) (Figure 1) is comprised of seven precincts. The key development sites are only located within two of these precincts, being The Village Centre and The Southern Gateway (Table 1). The intent of The Village Centre is for a vibrant place that provides an exciting range of retail, entertainment, cultural, accommodation and commercial activities for the local community and visitors. The intent of the Southern Gateway is to provide an attractive entry to The Spit.

Figure 1: Map showing the master plan area and seven precincts


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The Ministerial Direction requires the amendment to be made by 30 July 2020. Given this requirement, when determining the most appropriate zoning designation for the key development sites, City officers considered it essential that the proposed zoning designation resulted in minimal disruption to the City Plan (i.e. minimal consequential changes to the Strategic Framework) and the anticipated land uses generally aligned with the purpose of the zone. The amendment area is currently located within the Community facilities zone, Open space zone and Waterfront and marine industry zone of the City Plan, as shown in Figure 2. The suitability of the master plan outcomes for each key development site is presented in Table 1.

Figure 2: Map showing the amendment area and currently City Plan zoning

Table 1: Table comparing master plan outcomes to suitability of current City Plan zoning

Key development site (Refer Figure 1)

Master plan precinct

Master plan outcome Current zoning

Suitability

Lot 530 on WD6522 The Village Precinct (Village centre North)

5.10, 5.12, 5.14, 5.15, 5.17 and 5.18

Community facilities

Not suitable. The purpose of this zone is to provide for community related activities. Whilst the amendment will provide some community related activities, the development outcomes on these sites are for a mixture of business, community, recreation and environmental, tourism and entertainment activities, service industry, landing and port services.

Lot 381 on WD5096, Lot 273 on WD3813 and Lot 12 on SP273760

5.19, 5.20 and 5.21

Lot 13 on USL 33533, Lot 621 on WD6252 and Lot 359 on WD5111

5.22 and 5.24

Lot 503 on WD6249 The Village Precinct (Village centre South)

5.31 Waterfront and marine industry

Not suitable. The purpose of this zone is to provide for uses for which a location adjoining or near the waterfront or a marine environment is essential. The development outcomes on these sites are for a mixture business,


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community, recreation and environmental, residential, tourism and entertainment activities, service industry, landing and port services.

Lot 504 on WD5735 5.32 Suitable. The purpose of this zone is to provide for uses for which a location adjoining or near the waterfront or a marine environment is essential. The development outcome on this site is for a maritime regional office which requires waterfront access.

Part of Lot 318 on WD800475

The Village Precinct (Village centre South)

5.28 Open Space

Not suitable. The purpose of this zone is to provide for local, district and regional scale parks. The development outcomes on these sites are for a range of business and tourism and entertainment activities.

Lot 505 and 506 on WD5735 and Part of Lot 400 on SP174972

The Southern Gateway

7.2 and 7.3 Waterfront and marine industry

Suitable. The purpose of this zone is to provide for uses for which a location adjoining or near the waterfront or a marine environment is essential. The development outcomes on these sites are for marine relates activities.

Given the lack of suitable outcomes shown in Table 1, City officers are recommending a change to the zoning designation of a number of the key development sites to reflect the master plan outcomes.

Analysis When determining the most appropriate zoning designation for the key development sites, City officers considered it essential that the proposed zoning designation results in minimal disruption to the City Plan (i.e. minimal consequential changes to the Strategic Framework) and the anticipated land uses generally aligned with the purpose of the zone.

Existing Waterfront and marine industry zone As detailed in Table 1, when reviewing the outcomes of the master plan for key development sites that are currently in the Waterfront and marine industry zone, the suitability of the current zoning designation was generally consistent with the outcomes of the master plan identified. However, during the preliminary state interest review, the Department requested several key development sites that were proposed to be retained in the Waterfront and marine industry zone to be included within the same zone as the key development site to the north. The Department requested these changes to allow for flexibility in the sale and delivery of these sites. Therefore, it is proposed to:

i. maintain part of Lot 504 on WD5735 within the Waterfront and marine industry zone; and ii. create a new zone precinct named ‘The Spit marine industry precinct’ in the Waterfront and

marine industry zone; and iii. rezone Lot 503 on WD6249 and part of Lot 504 on WD5735 to Major Tourism zone.

The creation of a zone precinct for this area would ensure that the unique characteristics of the master plan could be appropriately reflected in the City Plan. For example, specific built form requirements are sought in the master plan in these areas that would not be desirable in other Waterfront and marine industry areas in the City, such as the Gold Coast marine precinct. The proposed zoning changes to Lot 503 on WD6249 and Lot 504 on WD5735 are illustrated in Figure 3.


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Zoning designation for the remaining land parcels As detailed in Table 1, when reviewing the outcomes of the master plan for the remaining key development sites in The Spit amendment area, the suitability of the current zoning designation was not consistent with the outcomes of the master plan. Given that all of these remaining key development sites are located within the Village Centre Precinct, applying a consistent zone for these key development sites would provide for a cohesive waterfront destination in accordance with the master plan. This would also help minimise the complexity of the amendment, and consequently, the impact on City Plan.

City officers undertook a zoning options analysis for the remaining key development sites, evaluating the existing zones in City Plan to determine the most appropriate zoning designation. City officers determined the outcomes of the master plan would be best delivered through either the Major tourism zone or the Mixed use zone. The Centre zone was not considered appropriate given the potential impact to the city’s centre hierarchy and the fact there are no Performance outcomes or Acceptable outcomes for this zone.

Upon further analysis, City officers concluded the Major tourism zone was the preferred approach: • subject to minor changes, a Major tourism zone designation would result in less consequential

changes throughout the City Plan, namely the Strategic Framework; and• the current table of assessment for both zones indicates the Major tourism zone is more

compatible with the land uses envisaged in the master plan.Based on these findings, the Department agreed the remaining key development sites should be included within the Major tourism zone. Upon review the key development sites, there were three distinctive areas, each with their own unique characteristics. As such, the following new zone precincts are proposed:

• The Spit northern tourism precinct;• The Spit southern tourism precinct; and• The Spit eastern tourism precinct.

The proposed zoning changes for the remaining key development sites are illustrated in Figure 3.

Figure 3: Map showing the current and proposed City Plan zoning


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State interests considered Ministerial direction The changes comply with Ministerial Direction to the Gold Coast City Council under Section 26 of the Planning Act 2016, by • including appropriate assessment benchmarks for each key development lot; and• including each key development lot in a zone (or zones) that is or are compatible with the uses

shown in the master plan for each of the key development lots.

The Spit Master Plan The assessment benchmarks have been drafted having regard to the city wide strategies and the outcomes in The Spit Master Plan. The zoning for each site aligns with the outcomes of the master plan, except for those changes requested specifically from the Department which defers from the master plan.

State Planning Policy, July 2017 State interests relevant to this change include:

Guiding Principles Drafting of the zone code focuses on the delivery of outcomes and uses positive language to respond the outcomes of The Spit Master Plan. Where necessary, prescriptive language has been used to ensure the outcomes of The Spit Master Plan are expressed to promote confidence to the community and developers about the expected development outcomes for the area.

Housing supply and diversity and Liveable communities The proposed zoning changes are located in existing urban areas under the planning scheme (Community Facilities and Waterfront and marine industry), excluding a small portion of land on the eastern side of Seaworld Drive, which is currently open space. It is noted that this area of open space is directly adjacent to Medium density residential zone to the north and contains existing buildings and structures.

The proposed amendment is located within the City’s priority infrastructure area and is surrounded by a mixture of resorts, theme parks and community infrastructure and is currently serviced.

It is important to note that further planning scheme amendments will be considered which may facilitate appropriate zoning outside of the amendment area. These future amendments will provide a mixture of land uses to contribute to destination that exemplifies a balance between tourism, recreation, leisure experiences and the environment, as envisaged by the master plan.

Development and construction The proposed amendment will be located on State Land which will be subject to future lease arrangements. The proposed zoning seeks to facilitate outcomes of the Spit Master Plan. Through consultation, this area was identified as an appropriate area for future development opportunities, with other State Land areas to be utilised for recreation and conservation purposes.

Tourism A key strategy of the Spit Master Plan is to build and strengthen on the existing capabilities of the Spit as being an area known for tourism and recreational opportunities. The proposed Major Tourism Zone will capitalise upon the existing opportunities of The Spit as being an iconic tourist destination by encouraging a mixed use waterfront tourism destination.

Biodiversity Based upon the online SPP mapping, no MLES or MSES is present in the amendment area, excluding a small portion of land on the eastern side of Seaworld Drive which is currently Open Space. In the context of the Spit Master Plan, this area is very minor. Future development will require assessment against the biodiversity overlay code under the planning scheme to mitigate any potential impacts, where triggered by the overlay. Based upon the online SARA mapping, Koala habitat is not present on the site.


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Cultural heritage It is understood that the State Government has undertaken consultation with traditional owners throughout the master planning process. Any reflection of these interests would have been reflected in the master plan and reflected through the State Governments ongoing consultation with these traditional owners. It is noted that the amendment area contains a local heritage place, being the Humphreys Boat Shed and Slipway Remnants, any future development will require consideration against the Heritage overlay code to conserve its cultural heritage significance.

Coastal environment and water quality The proposed zoning changes are located in existing urban areas under the planning scheme (Community facilities and Waterfront and marine industry), excluding a small portion of land on the eastern side of Seaworld Drive which is currently Open Space. It is noted that this area of Open Space is directly adjacent to Medium density residential zone to the north and contains existing buildings and structures. The proposed extension of this urban zoning is logical to facilitate the outcomes of the master plan.

Natural hazards, risk and resilience The subject site is partially located within the flood hazard, medium storm tide inundation area and erosion prone area. The majority of the Spit area is located within the erosion prone area and medium storm tide inundation areas and has been subject to extensive development to the north and south of the amendment area. As the proposed zoning change is as a result of a Ministerial Direction, a fit for purpose risk assessment is not deemed necessary given the changes are consistent with the Ministerial Direction.

A large portion of the subject site is located outside of the erosion prone area and flood area, with future development requiring setbacks from the waters edge. Existing natural landforms will assist in minimising impacts of coastal erosion through outcome 5.13 of the Spit Masterplan, which seeks to maintain vegetation adjacent to the Broadwater. Each lot has the ability to design future development with flood free vehicular access to Sea World Drive.

Existing adjacent developed areas have been required to construct a revetment wall to minimise the risk of erosion and storm tide inundation. It is likely that a revetment wall will be required in areas where vegetation buffers are not present.

It is noted that the development outcomes of the subject site will be limited to three storeys or 15 metres, which is consistent with surrounding developments. Impacts from the natural hazards (flood and coastal erosion), will be mitigated under the planning scheme by elevating any accepted development land uses to accepted, subject to requirements which will require assessment against the coastal erosion hazard overlay code and the flood overlay code.

South East Queensland Regional Plan 2017 (ShapingSEQ) State interests relevant to this change include:

Grow – Efficient land use The amendment area is located within the Urban Footprint of ShapingSEQ.

Prosper – REC’s and Tourism The site is located with close proximity to the Southport-Broadbeach REC. This REC is a corridor of activity, which includes health and knowledge, cultural and creative, commercial and corporate services, tourism and higher order consumer functions. Although the site is not located within the REC, there is significant opportunity for these changes to contribute the tourism and higher order consumer functions of the REC given the areas unique characteristics.

A key strategy of the master plan is to build and strengthen on the existing capabilities of the Spit as being an area known for tourism and recreational opportunities. This area has been specifically identified within the master plan, as an area for residential, commercial and retail development.

Sustain - Aboriginal and Torres Strait Islander people and Regional landscapes


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It is understood that the State Government has undertaken consultation with traditional owners throughout the master planning process. Any reflection of these interests would have been reflected in the master plan and reflected through the State Governments ongoing consultation with these traditional owners. It is noted that the amendment area contains a local heritage place, being the Humphreys Boat Shed and Slipway Remnants, any future development will require consideration against the Heritage overlay code to conserve its cultural heritage significance.

The site is located within a regional greenspace network. The proposed zoning seeks to facilitate outcomes of the Spit Master Plan. Through consultation, this area was identified as an appropriate area for future development opportunities, with other State Land area to be for recreation and conservation purposes.


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Item 4: Tables of assessment

Summary Introduce tables of assessment to regulate levels of assessment.

Explanation The key development sites will be included in two zones in City Plan: (1) Major tourism zone (The Spit northern, southern and eastern precincts); and (2) Waterfront and marine industry zone (The Spit marine industry precinct). Given the scope of the Ministerial Direction, the key development sites are only located across two precincts of the master plan, being The Village Centre and The Southern Gateway. The master plan prescribes land use outcomes for the key development sites. City officers, together with the Department, have aligned each land use contemplated by the master plan with a City Plan land use definition. The result of this alignment exercise is presented in Table 2. Table 2: Proposed code assessable land uses for each zone precinct

Proposed zone and zone precinct

Master plan outcome

Proposed code assessable land uses

Major tourism zone – The Spit northern tourism precinct – Site N1

5.12 – A bar and function centre is located close to the water creating an entertainment venue and meeting place. 5.14 – A shop front visitor centre is located in a central position, providing information about nearby activities, accommodation and ways of getting around The Spit, and facilities for booking tourist activities. 5.15 – A building at the intersection of Seaworld Drive and the new street into the precinct provides a mix of uses, including food and beverage outlets on the ground floor level, offices and short term accommodation on upper levels.

Food and drink outlet Office Shop Health Care Services Market Community use Educational establishment Service industry Environment facility Park Landing Port services Telecommunications facility, subject to requirements Bar Function facility Hotel Short-term accommodation Nature-based tourism Theatre


5.17 – A cultural centre is located in a complex adjacent to The Broadwater and is a place that signifies and celebrates Aboriginal heritage and the association of the Aboriginal people with The Broadwater and surrounds. The centre enables visitors to learn about and experience the association of the Aboriginal people with The Spit and its broader setting. 5.18 – An open space adjacent to the cultural centre enables the staging of events such as traditional ceremonies and dance performances.


5.19 – A market and series of smaller retail pavilions provide an outlet for fresh seafood and other produce and low key dining opportunities. 5.20 – A complex of buildings and the associated public spaces provide opportunities to celebrate and appreciate the rich and dynamic maritime history of the Gold Coast, including the story of the formation of The Spit, significant maritime events such as extreme weather and ship wrecks, and the legacy of fishing, boating and surfing on the Gold Coast. 5.21 – The ground floor of the building complex provides space for maritime remembrance and memorabilia and retailing and dining opportunities. The upper levels of the complex provide short term accommodation for visitors to The Spit. 5.23 – Carters Basin continues to accommodate the local fishing fleet. A new marina opportunity includes facilities for superyachts and charter boats and a potential ferry stop that


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Master plan outcome Proposed code assessable land uses

has the capacity to provide alternative transport access to the Village Centre.

Major tourism zone – The Spit northerntourism precinct –Site N4

5.22 – The facilities associated with the fishing fleet are reorganised and renewed, enabling the daily catch to be sold direct to the public in a convenient and ordered manner. Access along the waterfront past the moored fleet is widened and improved to enable the safe passage of pedestrians and cyclists through this area of occasionally busy maritime activity. Logistics areas to support the ongoing operation of the fishing fleet are centrally located and designed so that impacts on pedestrian movement, views to The Broadwater and the amenity of nearby accommodation are minimised. Vehicle access and public parking is integrated across this site and the site to the south to enable safe and convenient access to this revitalised part of The Spit. 5.24 – The area directly north of Palazzo Versace is connected with the adjacent fishing fleet to create a mixed use maritime sub-precinct focused on fresh seafood supply with associated retail shops, restaurants and cafes. Informal outdoor eating areas with views to The Broadwater are provided near the water's edge. Public access is provided from Seaworld Drive through the site to The Broadwater pathway. The southern edge of the site is landscaped to provide shade to the pedestrian pathway and soften the interface between commercial uses and nearby accommodation.

Major tourism zone – The Spit southern tourism precinct

5.30 – A plaza with a landscaped arbour provides a strong link between The Broadwater and the ocean. Ground floor shopping, dining and foyers activate the plaza, creating a promenade that enlivens the southern part of the Village Centre. A ferry terminal located at The Broadwater end of the promenade enhances access to The Spit. 5.31 – A mixed use retail, commercial, residential and short term accommodation development occupies the site to the south of the plaza, providing an active presence to the plaza’s edge, The Broadwater and Seaworld Drive. A new marina associated with the development provides for mooring of boats and accommodates a superyacht berthing facility. The jetty associated with the marina provides public access for pedestrians out over the water. 5.32 – The Queensland Government maritime regional office is located in a new facility in the Village Centre South. The facility provides for the operational requirements of the maritime functions, such as the GCWA, Maritime Safety Queensland, Queensland Water Police and Queensland Boating and Fishing Patrol, enabling direct access for vessels to The Broadwater. 7.2 – A secure space for maritime and community facilities is located in the northern portion of the precinct. Buildings address the street, naval memorial and The Broadwater.

Food and drink outlet Health care services Office Sales office Shop Market Service station – if for the sale of fuel to on-water marine craft Community use Educational establishment Emergency services Park Environment facility Indoor sport and recreation Multiple dwelling Retirement facility Rooming accommodation Landing Port services Telecommunications facility, subject to requirements Bar Function facility Short-term accommodation Club Hotel

Major tourism zone – The Spit eastern tourism precinct

5.28 – A low scale resort style complex, south of the Sheraton Grand Mirage Resort, addresses and enlivens both the plaza and beachfront, and provides a distinctive frontage to Seaworld Drive.

Food and drink outlet Office Shop Health care services Park


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Master plan outcome Proposed code assessable land uses

Telecommunications facility, subject to requirements Bar Function facility Short-term accommodation Indoor sport and recreation Hotel

Waterfront and marine industry zone – The Spit marine industry precinct

7.3 – A boat storage facility is located along the edge of The Broadwater to the north of the yacht club building and does not exceed 15 metres in height. The significance of the existing heritage place is accommodated in the design of the proposed facility and the heritage values are signified on the site.

Marine industry Research and technology industry Service industry Park Landing Port services Telecommunications facility, subject to requirements

City officers have considered various ways in which the tables of assessment should operate, having regard to the proposed structure of the required updates to reflect the intent of the master plan in City Plan.

The various options considered by City officers included: • Option 1: per key development sites, as identified in the Ministerial Direction.• Option 2: the extent of each zone precinct; or

City officers determined applying a table of assessment by: • per key development sites (Option 1) is not appropriate as this level of prescription may result

in future unintended consequences should lot boundaries change and does not offer any levelof flexibility for the establishment of alternative land uses that may be considered appropriate /consistent with the master plan.

• the extent of each zone precinct (Option 2) is the most appropriate option because theoutcomes for the master plan for each precinct are generally compatible and will allow anappropriate degree of flexibility for the establishment of land uses across each precinct;

Therefore it is recommended the table of assessment for the amendment is applied per precinct within each zone and the land uses identified in Table 2 are shown to be code assessable. Other essential land uses are recommended to be accepted or accepted subject to requirement, consistent with current City Plan policy.

State interests considered Ministerial direction Land uses envisaged by the master plan are either code or accepted development. It is noted that the Ministerial direction only applies to land within the lots listed in table 1 that is located above the highest astronomical tide.

The Spit Master Plan Council and departmental officers have aligned each land use applicable to the amendment area with a city plan land use definition.

State Planning Policy, July 2017 No State interests in State Planning Policy, July 2017 are considered relevant to these changes.

South East Queensland Regional Plan 2017 (ShapingSEQ) No State interests in ShapingSEQ are considered relevant to these changes.


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