DEVELOPMENT APPLICATION ASSESSMENT REPORT Proposed ...

DEVELOPMENT APPLICATION ASSESSMENT REPORT 

ARMSTRONG BEACH ROAD, SARINA MARCH 2012 

DEVELOPMENT APPLICATION 

ASSESSMENT REPORT 

Proposed Non-Resident Workforce Accommodation 

& Commercial Premises (Office) 

Part of Lot 1 RP726644 

Armstrong Beach Road, Sarina 

Mackay Regional Council 

Our Ref: PL2553 

Prepared for: 

QCV Sarina Pty Limited 

March 2012 

WOLTER CONSULTING GROUP Page 1



Wolter Consulting Group ABN 63 366 350 062 

Suite 1, Ground Floor, 30 Florence Street QLD 4006. 

P.O Box 436, New Farm QLD 4005. 

T: (07) 3666 5200 F: (07) 3666 5202 E: brisbane@wolterconsulting.com.au 

© Wolter Consulting Group 2011 

This document is and shall remain the property of Wolter Consulting Group. The document may only be used for the 

purposes for which it was commissioned and in accordance with the Terms of Engagement for the commission. 

Unauthorised use of this document in any form whatsoever is prohibited. 

Document Status 

Rev 

No. 

Author 

Reviewer 

Approved for Issue 

Name Signature Name Signature Date 

0 A. O’Neill S. Spargo S. Spargo 14/03/2012 




Development Assessment Report 

Contents 

EXECUTIVE SUMMARY-------------------------------------------------------------------------------------------------------------------4 

Summary Table -------------------------------------------------------------------------------------------------------------------------------4 

1 INTRODUCTION---------------------------------------------------------------------------------------------------- 9 

2 PROPOSAL---------------------------------------------------------------------------------------------------------10 

1.1 GENERAL DESCRIPTION------------------------------------------------------------------------------------------------------------ 10 

1.2 GENERAL JUSTIFICATION FOR PROPOSAL / DESIGN ------------------------------------------------------------------------- 10 

2.1 PROPOSAL DETAIL ---------------------------------------------------------------------------------------------12 

2.2 SUMMARY AND LIST OF SUPPORTING SPECIALIST REPORTS--------------------------------------------------------------- 16 

3 PRE - APPLICATION / CONSULTATION AND HISTORY-----------------------------------------------18 

3.1 SITE HISTORY------------------------------------------------------------------------------------------------------------------------ 18 

3.2 PRELODGEMENT MEETINGS------------------------------------------------------------------------------------------------------- 19 

4 SITE INFORMATION AND ANALYSIS-----------------------------------------------------------------------20 

4.1 PHYSICAL DESCRIPTION ----------------------------------------------------------------------------------------------------------- 20 

4.2 EXISTING USES ---------------------------------------------------------------------------------------------------------------------- 20 

4.3 CONTEXT------------------------------------------------------------------------------------------------------------------------------ 20 

5 ASSESSMENT FRAMEWORK---------------------------------------------------------------------------------23 

5.1 STATE FRAMEWORK ---------------------------------------------------------------------------------------------------------------- 23 

5.2 REGIONAL FRAMEWORK ----------------------------------------------------------------------------------------------------------- 23 

5.3 LOCAL FRAMEWORK ---------------------------------------------------------------------------------------------------------------- 27 

6 REFERRAL AGENCIES -----------------------------------------------------------------------------------------34 

7 KEY DEVELOPMENT ISSUES---------------------------------------------------------------------------------38 

8 CONCLUSIONS AND RECOMMENDATIONS -------------------------------------------------------------41 

APPENDICES------------------------------------------------------------------------------------------------------------------43 




EXECUTIVE SUMMARY 

Summary Table 

Address of Site: Armstrong Beach Road, Sarina 

Real Property Description: Part of Lot 1 on RP726644 

Area of Subject Site: Approx. 6ha (Part of subject Lot) 

Regional Plan Land Use Category: Mackay, Isaac, and Whitsunday Regional Plan – Regional Landscape & Rural Production Area 

Area Classification / Local Plan: Open Space Zone – Sarina Shire Planning Scheme 

Name of Land Owner: 1 Sarina Golf Club Inc. 

Type of Application: 1 

Prelodgement / Consultation: 

Aspects of 

Development 

MCU 

Type of Approval 

Requested 

PA 

DP 

Council: 

- DA 

Y / N 

Date 

21 st Nov 

2011 

Contact Name / Ref 

Peter Cardiff, ongoing consultation. 

Shane Kleve, Peter Bratt; 

prelodgement meeting in Mackay. 

RoL 

- Other 

BW 

OW 

PA s242 yes no 

Referral Agencies: 

Transport & Main Roads, 

DLGP, Mackay 

21 st Nov 

2011 

29th Feb 

2012 

Prelodgement meeting with TMR, 

Mackay office 

Application submitted to DLGP for 

referral agency response before 

application is made 

Community: 

Ongoing consultation with land 

owners (Sarina Golf Club, and 

contact with adjacent owners (QR 

National, Jilalan) 

Local Councillor: 

Consultation and briefings to Mayor 

and other Council staff during 2 nd - 

half 2011 and early 2012 

Other: 

BHP Billiton Mitsubishi 

Alliance – Hay Point 

Expansion Project 

February 

2012 

Consultation with BMA and Bechtel 

related to staff accommodation 

requirements for the Hay Point Coal 

Terminal expansion project – A precommitment 

was received (see 

Appendix H) confirming staff 

accommodation required at the 

proposed NRWA facility. 

Brief Description/ Purpose of Proposal: Development Permit for Material Change of Use for an Undefined Use (Non-Resident 

Workforce Accommodation) & Commercial Premises (Office) 

Staged Development: Yes 

Referral Agencies: 1 Yes 

Agency C / A 2 Referral Agency response received? 

Department of Transport and Main Roads yes no 

Department of Local Government & Planning yes no 

Proposal submitted to DLGP on 29/2/2012 for 

referral agency response before application is 

made. 

Level of Assessment: code code notifiable impact 

Public Notification: no yes If Yes: 15 30 business days 

Superseded Planning Scheme Application: no yes 

1 Preliminary Approval (PA), Development Permit (DP), Material Change of Use (MCU), Reconfiguration of a Lot (RoL), 

Building Works (BW), Operational Works (OW). 

2 Concurrence (C), Advice (A). 




Applicant Contact Person: Wolter Consulting Group Pty Ltd c/- Shane Spargo, Associate Town Planner 

(ph) 3666 5200 (f) 3666 5202 sspargo@wolterconsulting.com.au 




Figure 1: Simple Site Plan 

Summary of Proposal 

The proposed development comprises a non-resident workforce accommodation facility to be 

constructed by QCV Sarina Pty Limited, and a separate office building to be constructed by QCV Sarina 

Pty Limited and operated independently by the Pacific National/ Asciano group for administrative 

activities and staff amenities. The development is to be located over land on Armstrong Beach Road, 

Sarina. The site is also described as part of Lot 1 on RP726644. 

The purpose of the proposed QCV workers accommodation facility is to support local industry and 

construction projects by increasing the available short to medium-term accommodation available for 

industry and mining workers within the Mackay region. 

The proposed Pacific National office use within the development is aimed at providing a purpose-built 

office and administrative facility to replace its existing facility within the Sarina Township. The office will 

increase capacity for their staff, improve the standard of facilities available, and offer greater efficiency 

and functionality for operations through a more appropriate location for its 24 hours, 7 days a week 

operational requirements at the facility. 

Key Issues 

Defined Use 

Our review of Schedule 1 of the Sarina Shire Planning Scheme 2005 (Planning Scheme) has identified 

that the proposed workers accommodation facility does not fall within a defined use category. However, 

Council have confirmed that the definition for Non-resident Workforce Accommodation derived from the 

Queensland Planning Provisions is appropriate for the proposed facility. This application therefore seeks 

approval for the development as Non-resident Workforce Accommodation, however for the purposes of 




assessment against the planning scheme and other relevant policies and provisions, it is an Undefined 

Use. 

The proposed office falls within the Commercial Premises use definition in accordance with Schedule 1 

of the Planning Scheme. 

Non-resident Workforce Accommodation 

The proposed Non-resident Workforce Accommodation is intended to provide worker accommodation 

opportunities for a variety of mining, construction, and other resource-related industry companies from 

both the private and public sectors, which require accommodation for their staff operating in the 

Mackay, regional area. This development is responding to a recognised significant shortfall of housing 

accommodation suitable for short to medium-term workers in the region. This is despite the region being 

renowned for its strong resource industries and mining activities. Detailed plans of the proposed 

development are enclosed at Appendix A. 

Environmentally Relevant Activity (ERA) 63 

The development and operation of a worker’s accommodation facility will require an on-site sewage 

treatment facility. For the purposes of compliance and licensing, a sewage treatment facility is 

categorised under Section 2 of the Environmental Protection Regulation 2008 as being an ERA 63, 

which is identified as “operating 1 or more sewage treatment works at a site that have a total daily peak 

design capacity of at least 21EP”. In support of the Non-resident Workforce Accommodation, a 

separate development application for an ERA63 will be prepared and lodged with the Department of 

Environment and Resource Management (DERM) for their approval and issuing of the appropriate 

license for the facility. 

Traffic, Transport, and Access 

The site was previously subject of a development application for a temporary workers accommodation 

facility, which was approved and constructed to house the workforce that undertook the related upgrade 

of the Jilalan Railway Yard complex. That facility housed in excess of 200 workers, and provided for a 

significant number of private vehicle car parks for staff while they were staying at the facility on-shift. 

During prelodgement discussions with both Mackay Regional Council and the Department of Transport 

and Main Roads, the potential traffic and transport impacts of the proposed facility were identified as 

being a key issue that this application and the operation of the facility would need to address and 

appropriately mitigate any impacts. 




In support of this application TTM Traffic consultants have prepared a Traffic Engineering Report which 

identifies and addresses any foreseeable traffic and transport impacts from the operation of the facility, 

and makes recommendations regarding the management of vehicle moments from the site. This report 

is enclosed at Appendix D, and its findings and recommendations are referenced throughout the 

application. 

Recommendation 

This development application for the proposed Non-resident Workforce Accommodation facility and 

integrated Office facility is recommended for approval subject to reasonable and relevant conditions. 




1 INTRODUCTION 

This town planning development assessment report has been prepared in support of a development 

application seeking a Material Change of Use for Non-resident Workforce Accommodation facility and 

Commercial Premises (Office) on land at Armstrong Beach Road, Sarina. This site is described as part 

of Lot 1 on RP726644. 

Please note that throughout this development assessment report and application, given the undefined 

nature of the proposed use under the Planning Scheme, the facility will be referred to as a Non-resident 

Workforce Accommodation facility in accordance with the definitions within the Queensland Planning 

Provisions. This has been agreed to with the assessment manager, Mackay Regional Council, following 

prelodgement meeting discussions, and provides the most-appropriate description of the use to be 

assessed, approved, and constructed. 

This report provides the following information with respect to the assessment of the development 

proposal: 

• Proposal Overview; 

• Site Information and Analysis; 

• Assessment Framework; 

• Key Planning Issues; and 

• Recommendations and Conclusions. 

• Appendices 

Given the nature of the proposal, a series of technical reports, architectural plans, site survey, and other 

supporting information has been prepared and submitted with this development application in support of 

the proposal. 




2 PROPOSAL 

1.1 GENERAL DESCRIPTION 

The proposed development seeks Council approval for a: 

• Development Permit for a Material Change of Use for an Undefined Use - Non-resident 

Workforce Accommodation; and 

• Development Permit for a Material Change of Use for Commercial Premises (Office). 

1.2 GENERAL JUSTIFICATION FOR PROPOSAL / DESIGN 

The Whitsunday, Isaac and Mackay regional area incorporates an established but also expanding and 

evolving industrial, resource and mining sector that are expected to contribute significantly to the 

economic development of the region, and the State of Queensland. In particular, the region includes a 

number of Major (Sarina, Moranbah, Bowen, Airlie Beach, and Proserpine) and Principal (Mackay) 

Regional Activity Centres which comprise developing industrial and construction activities in support of 

regional mining and resource activities. These Centres are further complemented by established and 

expanding mining and extractive resource operations around Nebo, Moranbah, Clermont, Collinsville 

and Middlemount. In support of these operations are ancillary industries including rail haulage and port 

services (Hay Point/ Dalrymple Bay) for the export of mined materials, and emerging markets such as 

natural and coal-seam gas that will require new infrastructure in the region. 

As part of the ongoing expansion and growth of the mining, industrial and construction sectors in the 

region, a significant increase in suitable worker accommodation is required to match the growth 

anticipated. Without it, the present shortfall of worker accommodation being experienced around Mackay 

will continue unabated. The proposed QCV accommodation facility presents an opportunity to address 

this need in the Sarina area with respect to an appropriate accommodation type, site context, proximity 

to surrounding activities, and accessibility by way of major road and nearby airport services. 

The location of the subject site on the fringe of the Sarina Township provides an ideal location for an 

accommodation facility of the type proposed, given the previous use of the site for a temporary projectrelated 

accommodation facility, and the context of the site to the surrounding road network. This location 

provides companies using the facility for its employees with excellent connections to the various mining 

and industrial activities and activity centres within the region, as well as specific projects in the region 

which have a current demand for accommodation for their employees. 

The accommodation facility will provide for short, medium, and long-term lease opportunities for relevant 

companies and other private contractors to accommodate workers within appropriate proximity to work 

sites and projects. 




The accommodation facility will be largely self-sufficient in terms of its facilities, limiting the need for 

resident workers to leave the site while they are in-between daily work shifts. The proposed kitchen, 

laundry, and other staff amenities on site will likely utilise local and regional service industries when 

sourcing supplies and labour. 

By providing substantial facilities on-site for use by staff between shifts, the potential for impacts from 

private vehicle usage between rostered stays at the facility will be limited. It is expected that companies 

utilising the facility for its employees will make arrangements for pooled transportation of staff to and 

from project sites at shift-changes, as well as transporting staff coming in and out of the region by air 

through Mackay. The adjoining Sarina Golf Course and other sports, recreation, and social clubs and 

groups in Sarina will provide for active recreation and lifestyle opportunities for workers in-between daily 

work shifts. 




2.1 Proposal Detail 

This application proposes a worker’s accommodation facility to support industry and construction projects 

in the immediate vicinity, and also the broader Mackay, Isaac and Whitsunday region. A detailed 

synopsis of the development is provided below: 

Material Change of Use (Non-resident Workforce Accommodation) 

The proposed Non-resident Workforce Accommodation will be located over part of Lot 1 on RP726644 

and provided over a two (2) stage program of delivery, comprising the following. Detailed plans of the 

development are provided within Appendix A, while a corresponding detailed survey was prepared for the 

site, and is contained at Appendix F: 

Stage 1 

• 402 rooms, comprised of: 

o 2x3 Bed Accommodation Building (12m x 9m) – Forty-nine (49) Blocks; and 

o 4x3 Bed Accommodation Building (25m x 9m) – Nine (9) Blocks. 

• Ancillary facilities, including: 

o Kitchen/Dining Building (36.9m x 12m) – One (1) Block; 

o Dining Building () - Two (2) Blocks; 

o Laundry Building (14.4m x 3.3m) – Six (6) Blocks; 

o Gym Building (12m x 12m) – One (1) Block; 

o Recreation Hall (18m x 12m) – One (1) Block; and 

o Administration Building – One (1) Block. 

• Office Building 

• 233 Car Parking Spaces 

The design capacity for many of the facilities at the development will be well in excess of 600 persons, 

including the waste-water treatment plant, and the kitchen, communal and recreational facilities. This is to 

ensure that residents of the facility do not experience sub-standard levels of service or comfort. Given the 

staging of the development, the majority of service facilities are to be provided as part of Stage 1 but with 

a capacity capable of accommodating the additional Stage 2 demand. This intended delivery program will 

result in the accommodation facility having a total capacity of 600 persons. 

Stage 2 

• 198 rooms, comprised of: 

o 2x3 Bed Accommodation Building (12m x 9m) – One (1) Block; and 

o 4x3 Bed Accommodation Building (25m x 9m) – Sixteen (16) Blocks. 




• Ancillary facilities, including: 

o Dining Building (12m x 12m) – One (1) Block; 

o Recreation Hall – One (1) Block; 

o Laundry Building (14.4m x 3.3m) – Two (2) Blocks. 

• 80 Car Parking Spaces. 

The timing of the delivery of Stage 2 is yet to be determined, but it can be assumed that it will be based 

on demand for the accommodation, and will be constructed within the currency period of the development 

application post-approval. The extent of the proposed Staging is shown in the enclosed architecture 

plans at Appendix A. 

Layout and Facilities 

With respect to proposed Stage 1, much of the development will align with the footprint and infrastructure 

that existed from the abandoned temporary accommodation facility that has since vacated the site (visible 

on the current imagery of the online Google Maps service). In particular, the facilities main Kitchen/Dining 

Room, Administration Building, Gym and Recreation Hall will be centrally located, with the three (3) main 

accommodation areas surrounding these facilities, supported by smaller ancillary services including 

laundry rooms and dining rooms interspersed between them to increase convenience for staff and reduce 

walking distances. 

Because a significant proportion of staff will arrive to site for their shift roster period via private vehicle, an 

adequate car parking area of some 233 car spaces will be provided to cater for the accommodation 

facility alone at Stage 1. The number of car parking spaces will increase proportionately with the 

establishment of Stage 2, with an additional 80 car spaces to be provided. This car park has the potential 

to hold other vehicles for short-term parking, such as site transport buses when not in use, and other 

facility service vehicles. .It also provides for sufficient turn-around areas and access for service vehicles 

accessing facilities such as the kitchen and laundries. 

The bedroom units are self contained with respect to bathroom/ensuite facilities. All connecting walkways 

between the units will be covered, and the elevated connecting walkway surfaces will be made from allweather 

timber decking or a similar material. Other walkways between units and facilities will either be 

concreted, sealed bitumen, or a suitable chip-seal material. The facility will connect with the existing 

pathway constructed as part of the previous temporary accommodation facility and still existing. This will 

provide pedestrian access from the facility, through the Golf Course, to the Sarina Golf Club clubhouse. 

The accommodation facility will provide sufficient amenities for staff comfort, such as televisions in each 

room, split-system air-conditioning, and internet access to all rooms across the site. The details of other 




amenities and facilities to be provided are yet to be confirmed, but could be provided to Council during its 

assessment of the application. 

Infrastructure 

• Waste-water treatment 

o A waste-water treatment package plant is to be installed to service the accommodation facility. 

A separate application for an ERA 63 is currently under preparation and will be lodged with 

DERM to ensure the workers accommodation camp is suitably serviced by a package plant 

sewage treatment facility in accordance with the requirements of the ERA 63 provisions of the 

Environmental Protection Regulation 2008. This sewage treatment system will be designed 

specifically to be in excess of the required Equivalent Persons (EP), accommodating the 

envisaged peak workforce of 600 staff. 

• Power supply 

o Permanent site power supply will be via an existing Ergon overhead supply that travels along 

Armstrong Beach Road adjacent to the site. Access to this supply is currently being submitted 

to Ergon for both Stages of the project. The previous abandoned accommodation facility 

utilised this connection. 

• Water supply 

o Water supply is currently being organised by the developers of the facility, and will likely be 

sourced from the town water mains supply. During prelodgement discussions with Council 

staff, we were made aware that insufficient water pressure may exist in the area of the 

development to service the facility by gravity feed. In that event, a tank storage arrangement 

will be installed, from which the development will be serviced under pressure by pump. The 

previous abandoned accommodation facility utilised a similar arrangement to connect to the 

town water supply. 

Noise 

Given the context of the site and proximity to Armstrong Beach Road and the Jilalan Railyards/ 

Goonyella Rail network, it is expected that the accommodation will be somewhat affected by existing 

noise impacts. However, as per the enclosed architectural plans and prepared site survey the following 

measures have been incorporated to reduce the potential for sleep-disturbing noise impacts: 

o the setback and orientation of accommodation buildings on the site, 

o the utilisation of an existing earth-bund along the Armstrong Beach Rd boundary, 

o the retention of existing and planting of supplementary vegetation around the extents of 

the property; and, 

o the use of air-conditioning within the units to enable windows to be closed. 




Access 

Access to the accommodation facility is to be gained via the pre-established vehicular crossover to 

Armstrong Beach Road. However, given the capacity increase of the accommodation facility in 

comparison to the previous 200-person temporary facility,, the access and internal driveway/carpark area 

is to be upgraded to ensure safe, all-weather access for vehicles entering and exiting the site. This will 

include new linemarking and turning-lane provision along Armstrong Beach Road, in accordance with the 

recommendations within the TTM Traffic Engineering Report enclosed at Appendix D. This report also 

details the internal vehicle circulation proposed, demonstrating all vehicle types anticipated to be servicing 

the facility can be accommodated in the proposed design. 

The proposed accommodation facility will also incorporate an emergency access road around the main 

accommodation area in the event that emergency services are required to access an area of the facility 

away from car parks and access roads. They will also be used by facility service vehicles during cleaning 

and other maintenance activities to the facility. No staff is to use personal vehicles to access these 

emergency access roads and areas of the facility, with private vehicles to be restricted to the designated 

driveway and parking areas for safety reasons. 

Site Selection 

The site was selected based on the following factors: 

• to ensure that the accommodation facility would be free from stormwater and flood impacts, 

• the site would have limited potential for impacts on or constraints from any nearby existing 

residential uses, 

• be suitably located with a high level of access to surrounding major roads that connect it with the 

centres and major project sites nearby and elsewhere in the region; and, 

• be located on a site under single ownership, and with adequate infrastructure services to the 

site. 

Furthermore, the site has been subject to a previous development application for a Temporary Workers 

Accommodation which operated up until early 2010 (estimated). The proposed new Non-resident 

Workforce Accommodation will utilise the existing development footprint and services over the site left 

abandoned from the previous temporary facility. Further details of the previous use and development 

footprint are detailed in Section 3.1 of this Report. 

Material Change of Use (Office) 

While the proposed Office is to be co-located with the workers accommodation facility, the office will be 

independently run by Pacific National–Asciano. The office is proposed as an upgrade to the existing 

Pacific National office and staff amenity facility located on Broad Street (Bruce Highway) within Sarina. 




The Office will be utilised for a staff operations, including staff sign on/ sign off and administrative 

functions (i.e. conferences, training, briefings, and meetings). Details of the proposed facility are provided 

in the following summation: 

• The office building will have a capacity for 130 operation staff (an increase of 30 additional staff from 

the current Sarina office); 

• The facility will cater for 24 hours, 7 days a week operation to accommodation the nature of coal rail 

operations in the region. 

• Pacific National staff shift-on/shift-off periods are irregular, with an expected one-third of the on-shift 

staff to be present at the office at any one time. 

Car parking will be provided for approximately seventy (70) Pacific National staff vehicles (this will 

fluctuate, but should not exceed 70); eight (8) Pacific National vehicles and ten (10) staff transport 

vehicles. Due to the irregularity of staff shift on/shift off periods and off-site work areas, the proposed 80 

space car parking area designated for the Pacific National office use is considered sufficient. 

2.2 SUMMARY AND LIST OF SUPPORTING SPECIALIST REPORTS 

The following specialist reports and information have been prepared in support of this development 

application: 

• Plans of Development prepared by i4 Architecture; 

• Photographs of the proposed development site, taken 21st November 2011. 

• Code Compliance Statements prepared by Wolter Consulting Group 

• Traffic Engineering Report prepared by TTM Traffic consultants; 

• Landscape Concept Plan prepared by Hywel Jones Landscape Architects 

• Detailed Site Survey undertaken by WS Group 

• Social Impact Assessment prepared by Warwick Powell (Director, Urban Advisory - SINO 

Australia Investment & Trade Group) 

It is anticipated that Council may require additional specialist reports to assess the development 

application. We expect that the requirement for these will be confirmed by Council during its initial 

assessment of the application, and requested as part of an Information Request if required. 

This application also includes a copy of correspondence from BHP Billiton Mitsubishi Alliance (BMA) 

demonstrating present demand for the facility and a pre-commitment to utilise 100 rooms of the first 

stage of the proposed Non-Resident Workforce Accommodation facility to accommodate staff required 

for the expansion of the Hay Point Coal Terminal. This pre-commitment clearly demonstrates that the 




accommodation facility is an activity associated with primary industry activities or construction work for 

primary industry purposes occurring in the surrounding area. 




3 PRE - APPLICATION / CONSULTATION AND 

HISTORY 

3.1 SITE HISTORY 

The site has been subject to a previous Development Approval in 2008 for a Temporary Construction 

Accommodation Village (Council Ref: MCU-00053). This facility existed for approximately 15 to 18 

months, and was removed at the end of its requirement to support the upgrade of the adjacent Jilalan 

Railway Yard at that time. The use included three (3) accommodation areas comprising a total of 74 

four person units, supported by administration, kitchen/dining, recreation, and service buildings (Please 

refer to Figure 2 below. The aerial photograph illustrates the previous camp during operation). In 

accordance with the Schedule of Conditions of its approval, the use was decommissioned prior to 

January 2010 with all buildings removed from the site. 

Figure 2: Aerial Photograph of previous Temporary Construction Accommodation Village 

(subject of DA Ref: MCU-00053) 

Source: Google Maps 

The balance of the subject Lot, Lot 1 RP726644 contains some areas of the Sarina Golf Club golf 

course, as well as a man-made water storage dam used for irrigation by the golf club on the course. The 

site also contains vegetation to the north and north-east of the facility that will remain unaffected by the 

development. 




3.2 PRELODGEMENT MEETINGS 

Mackay Regional Council 

An initial prelodegment meeting was held on 17 May 2011 between representatives of Mackay Regional 

Council planning (Shane Kleve) and engineering staff (Peter Bratt), and Shane Spargo of Wolter 

Consulting Group, Lee Bermingham representing QCV Australia Pty Limited, and Brian Camilleri of 

TTM Group consultants. This meeting was used to discuss key planning issues associated with the 

proposed development, as well as confirming the nature of the development application required. 

Transport And Main Roads 

A prelodgement meeting was held on 21 st November 2011 with Transport and Main Roads officers Ross 

Young and Ainsley Welch and project representatives Shane Spargo of Wolter Consulting Group, and 

Brian Camilleri of TTM Group consultants. The primary matter discussed at this meeting was the 

potential for impacts on the intersection of Armstrong Beach Road, and the Bruce Highway. The 

enclosed Traffic Engineering Report was prepared in response to these discussions and the issues 

raised by TMR. 

Department of Local Government and Planning 

No prelodgement meeting was held with Department representatives, however several initial phone 

discussions were held between project representative Shane Spargo of Wolter Consulting Group, and 

Ms Shantelle Ianna of the Mackay DLGP office. These conversations confirmed the status of the 

relevant Draft Regional Plan applying to the development at that time, and confirmation of how the site 

was represented in the Plan. 

The adoption of the Mackay, Isaac, Whitsunday Regional Plan in February 2012 required further 

enquires to DLGP officers in Mackay, including Ms Katrina Clarke (Principal Planner). As a result of our 

interpretation of the adopted regional plan, the application was referred to the Department for their 

comment prior to lodgement of this application. This early referral sought to confirm that the 

development is not a material change of use to which division 2 of the State planning regulatory 

provisions for the Mackay, Isaac and Whitsunday Regional Plan applies. 

This development application demonstrates that there is an over-riding and urgent need for the 

proposed Non-Resident Workforce Accommodation facility to support associated primary industry 

activities in the surrounding area and the larger Mackay, Isaac and Whitsunday region. 

The key issues identified in all of these meetings have been addressed in detail in Section 7 of this 

report. 




4 SITE INFORMATION AND ANALYSIS 

4.1 PHYSICAL DESCRIPTION 

The site of this development application is formed by part of Lot 1 on RP726644 and has a total area of 

6ha. A detailed survey of this site is provided at Appendix F. Under the Sarina Planning Scheme, the 

site is located in the Open Space Zone and forms part of the Sarina Golf Club. However, the portion of 

Lot 1 which forms the subject site has been previously used for the purposes of a temporary 

Construction Accommodation Village. To assist in minimising the potential of any detrimental impacts to 

the site or surrounding area, the proposed Non-resident Workforce Accommodation facility will utilise the 

pre-established development footprint of the previously-approved use, with the footprint to extend further 

west over land that is clear of any significant vegetation. The subject site has a single frontage to 

Armstrong Beach Road, with vehicular access gained by an existing vehicular crossover which 

previously serviced the Temporary Construction Accommodation Village once on the site. Details of the 

proposed cross-over are provided in the enclosed Traffic Engineering Report at Appendix D. 

Recent photographs of the site of the proposed use are contained within Appendix B of this report. 

4.2 EXISTING USES 

The site is currently vacant; with the previous Temporary Workers Accommodation Village 

decommissioned and all buildings removed from the site subject of its approval (Council Ref: MCU- 

00053). 

4.3 CONTEXT 

The subject site is located approximately 3km south-east of the centre of the township of Sarina, and 

some 40km south of Mackay via the Bruce Highway. Its distance from Sarina limits the potential for any 

conflict with the existing low-density residential housing that dominates the township, while still ensuring 

that it is within close proximity to utilise its services. The proximity to Sarina can be seen in the aerial 

imagery and map provided in Figures 3 and 4 respectively. 

The subject site is formed by under-utilised land under ownership of the Sarina Golf Club, and located to 

the east of the extent of the golf course complex. The golf course immediately surrounds the site to the 

north and west, which can be seen in the aerial imagery in Figure 3. Pedestrian access to the course 

will be available via the existing footpath constructed to make the same connection for the previous 

temporary worker accommodation facility at the same site. 




The wider surrounding area is predominantly formed by rural uses, in particular sugar cane farming, with 

the exception of the Jilalan Railyards located directly opposite the south-east corner of the subject site. 

The proposed Non-resident Workforce Accommodation facility will be complimentary to this extensive 

and state-significant rail industry complex, given its support of the mining and industrial projects in the 

area. 

The nearest residential dwelling visible from the site is approximately 550m from the proposed 

development westwards along Armstrong Beach Road towards the Bruce Highway. This dwelling is a 

sugar cane farm farmhouse, and its view of the subject site is dominated by the Jilalan Railway Yard 

complex adjacent to the development. It is argued that the visual impact currently experienced by this 

dwelling from the Jilalan Railway Yard complex will remain far more significant that the proposed 

accommodation facility. 




Figure 3: Aerial Map (subject site depicted by red outline) 

Source: Google maps 

Subject Site 

Figure 4: Locality Plan (approximate subject site depicted by indicative circle) 

Source: Google maps 




5 ASSESSMENT FRAMEWORK 

The development application will be assessed against relevant provisions of the Sustainable Planning 

Act 2009 (SPA), other State legislation, the Sarina Shire Planning Scheme and supporting planning 

policies. Consideration of this assessment framework is outlined below. 

5.1 STATE FRAMEWORK 

The statutory framework for decision making in relation to land use and development in Queensland is 

contained within the Sustainable Planning Act 2009 (SPA) and its subordinate legislation. The relevant 

Planning Scheme against which this application is assessed is the Sarina Shire Planning Scheme 

(Sarina Planning Scheme), which is governed by the Mackay Regional Council following Council 

amalgamations. 

The key responsibilities of the State in relation to development are to oversee and ensure that: 

• State, Regional and Local planning legislation is appropriately implemented under SPA; 

• State interests and policies are integrated within the land use planning and development 

assessment framework through State planning instruments; and 

• IDAS is maintained as an efficient and effective development assessment system. 

As further identified within SPA, the assessment manager for the application is the Mackay Regional 

Council, and referral of the development application to State Agencies is reviewed within Section 6 – 

Referral Agencies of this report. 

5.2 REGIONAL FRAMEWORK 

The Mackay, Isaac and Whitsunday (MIW) Regional Plan 2011-2031 (referred to as the Regional Plan) 

was adopted on 8 February 2012 and provides the framework for managing growth, change, land use 

and development in the MIW region to the year 2031. The Regional Plan represents an agreed 

Queensland Government position on the future of MIW and takes precedence over all other planning 

instruments. 

The subject site is located within the Regional Landscape and Rural Production Area of the regional plan 

and is subject to Section 2.1 (Material Change of Use outside the Urban Footprint) of Division 2 under 

the MIW State Planning Regulatory Provisions 2012. While the proposed site of the development will be 

located outside of the Urban Footprint area of the adopted Regional Plan, it is our interpretation the 

proposed Non-Resident Workforce Accommodation use is not defined as a Residential Development, or 

an Urban Activity according to Schedule 2 (s2.1 and s2.2) of the Regional Plan. Therefore the 




development is not a material change of use to which division 2 of the State planning regulatory 

provisions for the Mackay, Isaac and Whitsunday Regional Plan applies. 

While Division 2 of the WIM Regional Plan may not apply, the proposal is considered to be consistent 

with the key principles and policies of the relevant Desired Regional Outcomes (DROs) of the Regional 

Plan, as demonstrated in Table A below. 

Table A – Desired Regional Outcomes 

Desired Regional Outcomes 

Our Response 

5. Strong Communities 

Principle 5.5.1 

The long term viability of resource communities is sustained by enhancing liveability, providing diverse 

housing and employment options and accommodating the needs of the resource sector. 

Policy 5.5.3 

Flexible living arrangements are available and are 

reflected in housing stock diversity, choice, and 

affordability; including the needs of FIFO and DIDO 

workers, while ensuring workers are not 

disadvantaged based on employment status 

Policy 5.5.7 

Planning for workers’ accommodation and 

infrastructure must address the impacts of the 

site’s eventual closure. 

Policy 5.5.10 

Continue to monitor the number and location of 

non-resident workforces in the Bowen Basin to 

The proposed Non-resident Workforce 

Accommodation facility provides a temporary 

housing outcome for non-permanent, non-resident 

workers associated with mining and construction 

industry projects in the surrounding area. By 

providing the accommodation facility in this location 

minimises risk of pricing-out lower income groups 

of residential opportunities in the Sarina township, 

as well as allowing fly-in, fly-out workers to position 

their usual place of residence (and families) out of 

town, minimising any social disruption. 

The proposed accommodation facility is expected 

to have an ongoing life span linked with the need 

for accommodation to support primary industry, 

mining, and construction projects in the 

surrounding area and the region. 

However, at which time the facility does cease 

operation, the site will be vacated and any natural 

features existing at the site at the time of 

occupation will have been protected and then reinstated. 

The current workforce demand generated by 

primary industry, mining and construction projects 

has significantly strained accommodation 




assist future social infrastructure provision. opportunities in nearby townships and the region. 

As demonstrated through with the pre-commitment 

for accommodation provided by BMA (enclosed 

with this application), the proposed NRWA facility 

provides a temporary accommodation option for 

various companies associated with significant 

mining and construction projects underway or 

about to commence in the surrounding area and 

the region. 

By making this development application and 

securing the required development permit, regional 

planning authorities and the local government can 

monitor this and other NRWA facilities to ensure 

that adequate social infrastructure can be provided 

as workforces grow. 

7. Managing Growth 

Principle 7.4.1 

Housing meets the needs of the community, considering all lifecycles stages, varying demands, and 

economic circumstances. 

Policy 7.4.6 

The proposed facility provides temporary 

Provide housing and accommodation for temporary accommodation for fly-in and fly-out workers 

residents and employees involved in industrial associated with the region’s primary industry 

development, mining and construction, and mining and construction projects directly in 

seasonal work. 

accordance with this policy item. 

Policy 7.4.7 

The location of the proposed facility will ensure any 

Ensure the scale and number of people potential social impacts as a result of temporary 

accommodated by non-resident worker accommodation are avoided. In particular, the 

accommodation is compatible with the nearby provision of this NRWA facility in conjunction with 

permanent residential population. 

longer-term workforce accommodation such as 

housing rental accommodation provides much 

needed housing diversity in the Sarina area, and 

reduces the proven demand that housing 

temporary workforces can place on longer-term 

accommodation options. 

The location of this NRWA facility and the nature of 

the shift work undertaken by its residents ensures 

that it is compatible with its immediate surrounds, 




Policy 7.4.8 

Facilitate the location of non-resident worker 

accommodation to ensure access to services and 

community integration, and social cohesion with 

the existing community. 

and that it will not conflict with existing residential 

areas in Sarina. 

The proposed development is strategically located 

to ensure that its residents have direct access to 

major roads, nearby railway facilities and rail 

corridors so that this workforce can quickly access 

primary industry activities and projects in the 

surrounding area and region. 

Its location also ensures that it is in close proximity 

to the Sarina township to ensure that the residents 

have the opportunity to integrate with the 

community when staying at the facility.. 




5.3 LOCAL FRAMEWORK 

The proposal requires assessment against the provisions of the Sarina Planning Scheme, including the 

Strategic Framework, Desired Environmental Outcomes (DEOs), zoning and any relevant planning 

scheme policies and codes. Specifically, this application has been identified as requiring assessment 

against the relevant strategies of the Strategic Framework and the Desired Environmental Outcomes 

contained in Part 1 and 2 respectively of the Sarina Planning Scheme. The application will also require 

a full assessment against the relevant primary, secondary and overlay code provisions. 

The application for an Undefined Use – Non-resident Workforce Accommodation facility within the Open 

Space Zone is subject to Impact Assessment in accordance with the relevant provisions of Sarina 

Planning Scheme and thus will be subject to public notification. 

5.3.1 Strategic Framework 

The development proposal has been assessed against the relevant development guidelines outlined in 

the Strategic Framework contained in Part 1, Division 2 of the Sarina Planning Scheme. 

The proposed development achieves the Broad Strategies for the Sarina Shire as listed and addressed 

in Table 3 below. 

Table 3: Strategic Framework 

Broad Strategies for Sarina Shire 

Residential, commercial, industry, community and 

recreation uses are: 

(a) Primarily located in Sarina town, Koumala, and the 

beachside communities at Louisa Creek, Half Tide, 

Salonika Beach, Grasstree Beach and Grasstree, 

Campwin Beach, Sarina Beach, Armstrong Beach and 

Freshwater Point; and 

(b) Only located outside these areas where they cannot be 

practicably located in the towns due to their nature, 

scale, effects or necessary relationship to other 

activities, particularly cultural heritage features, natural 

features, resources or infrastructure. 

Sarina Town is the main commercial and community centre 

in the Shire. 

The shire remains a productive rural area which manages 

its agricultural land resource to ensure this continues. 

Response 


Accommodation facility is located on the fringe of 

the Sarina township. The accommodation facility 

is appropriately located to capitalise on industrial 

and mining operations in the wider region given 

its location and proximity to major roads 

connecting to mining projects and ports. 

The site’s previous operation as a temporary 

accommodation facility approved by Council 

demonstrates that the proposed facility is 

appropriate in this location. 


Accommodation facility is not to be located in the 

Sarina township. However, its proximity to the 

Sarina Township will provide easy access to the 

town’s services for future workers during on-shift 

and transitioning between shift periods. 

Because of its location on the town’s outskirts, it 

will be able to support Sarina’s role as the 

Shire’s main commercial and community centre. 

The subject site is not identified as land intended 

for rural purposes. The previous use of the site, 





Response 

for a similar purpose, re-iterates the 

appropriateness of this location for a Workers 

accommodation facility. 

Its underlying zoning is Open Space. 

Rural residential development is encouraged in the northeastern 

part of the Shire in locations which avoid productive 

rural lands and ecological assets, do not intrude on the long 

term economic role of the Hay Point facility, and are located 

within reasonable distance of necessary community 

facilities. 

Tourist facilities are located where necessary to take 

advantage of the economic potential of the Shire. 

Agricultural and extractive uses are located within the rural 

area as necessary to take advantage of the economic 

potential of the areas’ natural resources and are protected 

for their long term contribution to the Shire’s economy. 

The extensive ecological resources and landscape values 

of the Shire are protected and integral to the Shire’s 

character and tourist potential. 

The Hay Point facility is recognised for its important 

economic function to the state of Queensland and its future 

operation and expansion is not impeded by encroaching 

residential or other incompatible land uses. 

The identified road hierarchy and railway corridors are 

protected from inappropriate development. 

Buildings and structures reflect the existing character of 

each community and are consistent with the visual amenity 

of the respective area. 

New uses and works are located, designed and managed in 

ways that maximise the efficiency of infrastructure, and of 

compatibility with other uses, works, cultural heritage 

features, natural and cultural resources. 

The proposal is for a Non-resident Workforce 

Accommodation facility and will not jeopardise the 

future development or amenity of future rural 

residential uses. 

Given its proximity to the Goonyella Railway 

corridor connecting to Hay Point, it is not 

expected that Rural Residential development will 

encroach on the site of the facility. 

The site is not located in the north-eastern part of 

the Shire, as referenced in the relevant Broad 

Strategy. 


Accommodation facility will not detract from any 

tourist facilities operating in the wider region. 

The proposal is for a Non-resident Workforce 

Accommodation facility which will not be located 

over rurally zoned land. 


Accommodation facility will not jeopardise the 

ecological resources or landscape values of the 

local area. In particular, the proposed use will 

operate over a site which has been previously 

utilised for a similar use, with emission and waste 

mitigation measures to be adopted. 

The proposed use will not have any impact upon 

the Hay Point facility, and will contribute to its 

economic function by supporting the regional 

resource industries that supply the port. 


Accommodation facility will not jeopardise the 

Sub-Arterial nature of Armstrong Beach Road. 

The proposed demountable structures are 

appropriate given the site’s context and proximity 

to the Jilalan Railway Yard industrial complex. 

The proposed worker’s accommodation facility 

will utilise a similar development footprint to the 

previous temporary workers accommodation 

facility that existed over the site. 

The Dudgeon Point/ Bally Keel area is recognised for its 

potential for new industry. This potential is also recognised 

in the regional planning framework for Whitsunday 

Hinterland and Mackay region. This potential relates to 

major industry, manufacturing and port related industry and 

The subject site is not located within the Dudgeon 

Point/ Bally Keel area. 





Response 

will only be realised where detailed and comprehensive 

investigations demonstrate that all necessary infrastructure 

(including appropriate transport access and water supply) is 

provided; the development is consistent with the 

environmental values of the locality (including coastal and 

marine precincts); development is ecologically sustainable; 

and the amenity of the surrounding rural residential and 

rural areas is protected. 




5.3.2 Desired Environmental Outcomes 

The development proposal has been assessed against Council’s Desired Environmental Outcomes 

(DEOs) contained in Part 3 of the Sarina Shire Planning Scheme. 

The proposed development achieves the DEOs as listed and addressed in Table 4 below. 

Table 4: Desired Environmental Outcomes 

Desired Environmental Outcomes 

The overall biodiversity and coastal values of the Shire are 

maintained, and natural ecological processes are protected 

and enhanced. 

Response 

The accommodation facility will be located on 

land that has been previously utilised for the 

same purpose. Given the self-containment of the 

facility in terms of emission outputs, it is 

considered that the facility will not affect the 

biodiversity and coastal values of the Shire. By 

utilising a previously-developed site, the 

proposed Non-resident Workforce 

Accommodation facility will not impact on the 

biodiversity and coastal values of the Shire, as 

well as protecting the natural ecological 

processes by locating on a Brownfield site. 

The Shire’s natural resources, including its agricultural soils, 

fisheries, timber resources and construction materials, are 

protected and utilised in a manner that ensures their 

ecological and economic values are available for future 

generations. 

Due to the sites prior use as an accommodation 

village, the natural resources are conserved 

because the proposed development seeks to 

only exist within a similar footprint of the 

previous use. This allows for conservation of 

surrounding existing vegetation and minimal 

disturbance of the surrounding area. 

Sarina Shire contains a prosperous community with a 

sustainable industrial and rural base, with a wide range of 

employment opportunities due to the diversity of local 

industries, including the Port of Hay Point, the Plane Creek 

Sugar Mill and Distillery, Jilalan QR maintenance yards, the 

cane industry and new rural industries, home based 

business activities and tourism (particularly at Sarina Beach 

and Salonika Beach), and through Sarina Township 

performing a strong role as the main service centre for the 

Shire. 

Reconfiguration of lots and material changes of use for 

urban and rural residential purposes are located where they 

increase the efficient and sustainable use of existing 

infrastructure in terms of water supply, stormwater 

management and waste disposal and projects infrastructure 

(including transport corridors) from inappropriate activities. 

Places of cultural significance in the Shire (Indigenous and 

non-Indigenous settlement) are respected, the village 

character in the Shire settlements is maintained and the 

relationship of traditional owners to the land and water 


Accommodation will allow for a larger workforce 

to exist within the Sarina township in support of 

major projects underway or proposed in the 

region. Accommodation for this workforce will 

allow existing and new industries to continue 

with certainty that workers can be 

accommodated, which will contribute to making 

Sarina Shire a even more prosperous 

community in the region. 

The proposed accommodation facility is 

appropriately located to ensure efficient and 

sustainable use of existing infrastructure, such as 

the existing major road network, the existing town 

water supply, and waste disposal systems in the 

immediate area. It will not impact on or constrain 

future infrastructure projects such as transport 

corridors. 

The proposed development does not affect any 

areas of cultural significance. During construction, 

the relevant Cultural Heritage legislation and 

guidelines will be followed. 




Desired Environmental Outcomes 

Response 

resources is recognised. 

Sarina Shire offers a high standard of living with a range of 

different residential lifestyles and housing types. New 

residential (both urban and rural residential) areas are 

developed in an efficient and sustainable manner with regard 

to infrastructure, are accessible to services provided in 

established settlements and maintain amenity by avoiding 

the establishment of adjacent incompatible land uses. 

Residents of the Shire and visitors have a high level of 

access to community services and facilities, including public 

transport. 


Accommodation facility provides an alternative 

living arrangement for temporary workers and 

allows for some living flexibility from traditional 

long-term housing in the area. This type of 

development is sustainable because of the low 

impact on the natural environment as well as the 

built environment, and the way it can be rapidly 

deployed in response to new major projects in 

the region. The adjacent Open Space and 

Industrial land uses do not present a conflict with 

the proposed use, given the previous use of the 

site as a temporary accommodation facility. 

While the site is some distance from established 

residential development in Sarina township, its 

proximity still allows and promotes accessibility 

to existing services in Sarina town. 

The location of the proposal allows for and 

promotes access into the Sarina township so that 

staff can and will use its services and associated 

community facilities. 

The proposal therefore is consistent with the DEOs in part 3 of the planning scheme. 




5.3.3 Area Classification 

The subject site is located within the Open Space Zone of the Sarina Planning Scheme. As the 

proposed development is categorised as an Undefined Use within the planning scheme, the proposal is 

identified as being impact assessable. The applicable codes are listed in Section 5.3.4 of this report. 

Location of Subject Site 

Figure 12: Extract from the Shire Zoning Map 

Source: Sarina Planning Scheme 

The proposed development is to be located within a site zoned as Open Space land for a number of 

reasons, detailed below: 

• The site was previously used for the development and operation of a temporary workers 

accommodation facility, constructed in support of the upgrade of the Jilalan Railway Yard 

which is of state significance and a critical component in the supply-chain for the coal industry. 

• The location of the site is intentionally in close proximity to support an existing overwhelming 

need for workforce accommodation to service local industry and mining operations in the 

Mackay, Isaac and Whitsunday Region. 

• The Open Space site is presently surplus land unused by its owner, the Sarina Golf Club. The 

area proposed for this development is mostly the area previously used by the abandoned 

temporary workers accommodation facility, and the adjacent area of cleared grassed land. 

Despite the Open Space zoning, no land subject of this development is used for public active 

or passive recreation. The development will not result in the loss of public open space land. It 

is currently private property and is fenced. 




Given the development approval history of the site for a temporary accommodation facility, it is 

proposed that the site is suitable for a new Non-resident Workforce Accommodation facility, which will 

immediately provide a substantial increase in worker accommodation and housing diversity in the 

Sarina area, and contribute to further economic development across the Region. 

5.3.4 Codes 

A summary of the applicable Codes is provided in the table below: 

Sarina Planning Scheme 

Primary Codes • Open Space Zone Code 

Overlay Codes • Conservation Areas Overlay Code 

• Natural Hazards Management Areas Overlay 

Code 

• Remnant Vegetation Overlay Code 

The relevant Primary and Secondary Codes are addressed in the Code Compliance Statement outlined 

in Appendix C of this report. 




6 REFERRAL AGENCIES 

A key part of the Integrated Development Assessment System (IDAS) framework (refer to Subdivision 2 

of the SPA) is the identification of referral agencies and their jurisdictions with respect to assessment of 

development applications. These agencies and their jurisdictions are detailed in Schedule 7 of the 

Sustainable Planning Regulation 2009. 

The relevant referral triggers for the development identified in Schedule 7 have been reviewed and 

noted respectively in Tables B & C below. It is further noted that the IDAS Checklist and Forms 1 and 5 

have been executed and provided in support of the development application. 

Please refer to the completed IDAS Checklist submitted in support of the application: 

Table B – Referral Check for MCU 

Under Schedule 7 of Sustainable Planning Regulation 2009 (as in force 4 February 2011) 

Referral Trigger / Comments 

Table 1 - For building work assessable against the Building Act 

N / A 

Table 2 - Other development made assessable under schedule 3 (whether or not the development 

is also assessable under a planning scheme, temporary local planning instrument or preliminary 

approval to which section 242 of the Act applies) 

Environmentally Relevant 

Activities 

 

A separate application is to be lodged with DERM for a Sewage 

Treatment Facility (ERA 63). The Sewage Treatment Facility is 

to service the proposed accommodation facility. 

Clearing Vegetation The application will not involve the clearing of native vegetation. 

Strategic Port Land The subject site is not identified as strategic port land. 

Airport Land The subject site is not identified as airport land. 

Major Hazard Facilities The proposed Material Change of Use is not for a Major Hazard 

Facility. 

Taking or Interfering with 

Water 

Any works involving the water storage adjacent to the site will be 

subject to an Operational Works application following this DA. 

Particular Dams The proposed development does not involve the 

Removal of quarry material 

Tidal works, or development 

in a coastal management 

district 

Queensland Heritage Place 

Contaminated Land 

 

 

 

 

The proposed development does not involve the removal of 

quarry material from a watercourse or lake made assessable 

under schedule 3, part 1, table 4, item 5 

The site is not situated within a Coastal Management District, 

the proposal is not in connection with the construction of a canal, 

and the site is not within the limits of a port under the Transport 

Infrastructure Act 1994 

The subject site is not identified as a Queensland Heritage 

Place. 

The subject site is not identified on the Contaminated Land 

Register or Environmental Management Register. 







Mobile and Temporary 

Relevant Activity 

Works or other 

Development in or Adjoining 

a Fish Habitat Area 

 

 

The application is not for a mobile and temporary 

environmentally relevant activity. 

The subject site is not located within or adjoining to a fish habitat 

area. 

Certain Aquaculture The proposal is not the purposes of aquaculture. 

Removal, destruction or 

damage of marine plants 

Development in interim 

koala habitat protection area 

Certain agricultural or animal 

husbandry activities in a wild 

river area 

Land in or near a 

conservation estate 

 

 

 

 

The proposed development does not involve the removal, 

destruction or damage of marine plants 

The subject site is not contained within the interim koala habitat 

protection area. 

The proposed development is not for agricultural or animal 

husbandry activities. 

The site is not located in or near a conservation estate 

Table 3 - Development made assessable under a planning scheme, temporary local planning 

instrument, preliminary approval to which section 242 of the Act applies or State planning 

regulatory provisions 

Land relating to a Statecontrolled 

road 

Development Impacting on 

a State-controlled Road 

Acid sulfate soils 

Declared catchment areas 

Coastal management 

districts (CMD) 

Land designated for 

community infrastructure 

Electricity infrastructure 

Clearing vegetation 

Contaminated land 

 

 

 

 

 

 

 

 

 

The site is not located within 100m of a State-controlled road. 

The proposed residential development exceeds the prescribed 

threshold of 50 accommodation units (LGA population 2) under 

Schedule 11. 

Previous soil studies over the subject site concluded that the 

subject site is not anticipated to comprise Acid Sulfate Soils. 

The site is not identified as a declared catchment area under the 

Water Act 2000 

The site is not situated within a Coastal Management District. 

The subject lots are not identified as land designated for 

community infrastructure 

The proposed development is not located on a site that is 

subject to an electricity infrastructure easement or within 100m 

of a sub-station 

Whilst the parent lot is identified as contain remnant vegetation 

that is a least concern regional ecosystem under the Vegetation 

Management Act 1999, the subject site applicable to this 

development application is not identified as containing 

significant vegetation. 

The site is not a premises as defined, and is not within an area 

where an area management advice has been given for 

unexploded ordinance 

Regional plans TBC The site is located within the Regional Landscape and Rural 







Production Area of the Mackay, Isaac, Whitsunday Regional Plan 

and therefore requires consideration of the MIW Regulatory 

Provisions. 

However, as outlined in a letter submitted to DLGP prior to 

lodging this application, the proposed Non-Resident Workforce 

Accommodation use is not defined as a Residential 

Development, or an Urban Activity according to Schedule 2 (s2.1 

and s2.2) of the Regional Plan. Therefore the development is not 

a material change of use to which division 2 of the State planning 

regulatory provisions for the Mackay, Isaac and Whitsunday 

Regional Plan applies. 

Public passenger transport 

Railways 

Oil and gas infrastructure 

Land in or near a wetland 

Land in or near a 


Land adjacent to or 

including a Queensland 

heritage place 

Certain preliminary 

approvals 

Removal, destruction or 

damage of marine plants 

Development in Distributorretailer’s 

Geographic Area 

 

 

 

 

 

 

 

 

 

The proposed residential development does not exceed the 

prescribed thresholds under schedule 12. 

While the proposed development is for residential purposes, the 

site area subject to this development application does not exceed 

5ha. 

The site is not subject to an easement for purposes of oil and gas 

infrastructure 

No part of the site is located within a Wetland Management Area 

or the GBR Wetland Protection Area. 

The site is not situated in, and is not located within 100m of 


The site is not identified as, nor does it share a boundary with a 

Queensland Heritage Place 

The application does not seek a Preliminary Approval under 

section 242 of SPA 

The proposed Material Change of Use does not involve 

operational work that is the removal, destruction or damage of 

marine plants 

The subject site is not located in an area of a local government 

under the SEQ Water Act. 

From this review it has been concluded that the application requires referral under IDAS to the 

Department of Transport and Main Roads as detailed in Table C below. 

Table C – Referral Agencies 

Referral Agency 

Status 

(C / A) 

Referral Trigger 

Department of Transport 

and Main Roads 

C The proposed development exceeds the threshold of 50 

dwellings for land not contiguous to a State-controlled 

Road. 

Department of Local To be As outlined in a letter submitted to DLGP prior to lodging 




Table C – Referral Agencies 

Referral Agency 

Status 

(C / A) 

Referral Trigger 

Government and Planning confirmed this application, the proposed Non-Resident Workforce 

Accommodation use is not defined as a Residential 

Development, or an Urban Activity according to Schedule 2 

(s2.1 and s2.2) of the Regional Plan. Therefore the 

development is not a material change of use to which 

division 2 of the State planning regulatory provisions for 

the Mackay, Isaac and Whitsunday Regional Plan applies. 




7 KEY DEVELOPMENT ISSUES 

The key town planning issues associated with the proposal are: 

Key Issues 

Defined Use 

Our review of Schedule 1 of the Sarina Shire Planning Scheme 2005 (Planning Scheme) has identified 

that that the proposed workers accommodation facility does not fall within a defined use category. 

However, through negotiations with Council it has been clarified that the definition for Non-resident 

Workforce Accommodation, derived from the Queensland Planning Provisions is appropriate for the 

proposed facility. This application therefore seeks approval for the development as Non-resident 

Workforce Accommodation, however for the purposes of assessment against the planning scheme and 

other relevant policies and provisions, it is an Undefined Use. 

The proposed office falls within the Commercial Premises use definition in accordance with Schedule 1 

of the Planning Scheme. 

Non-resident Workforce Accommodation 

The proposed Non-resident Workforce Accommodation is intended to provide worker accommodation 

opportunities for a variety of mining, construction, and other resource-related industry companies from 

both the private and public sectors, who require accommodation for their staff operating in the Mackay, 

regional area. This development is responding to a recognised significant shortfall of housing 

accommodation suitable for short to medium-term workers in the region. This is despite the region being 

renowned for its strong resource industries and mining activities. 

This development has been purposefully conceived and progressed to address part of this shortfall by 

providing accommodation in an appropriate location on the outskirts of Sarina, where good connections 

to the surrounding industrial and mining activities exist on the State-controlled Road and local road 

networks (i.e. Bruce Highway, Marlborough-Sarina Road, Sarina-Homebush Road, Armstrong Beach 

Road) and connections to the Goonyella rail system. The facility will also be within 30 minutes driving 

time from the Mackay Airport, which presents the opportunity tor specialist Fly In-Fly Out workers to 

work and live temporarily at the facility while on-shift at Primary Industry projects in the surrounding area 

and region. 

The provision of a Non-resident Workforce Accommodation facility in Sarina will lessen the potential for 

impacts that the demand for workforce accommodation has on short-term Motel/Hotel accommodation, 

and rental accommodation affordability and availability in townships. By providing workforce-specific 




housing suited to short/medium-term or FI-FO workers, the demand for rental tenancies specifically for 

short-term workers will be minimised. 

A social impact assessment has been prepared in support of this development application and in 

response to issues such as housing affordable and social impacts, and is provided at appendix G. 

Office Facility 

The development also proposes an Office building, which is proposed to be used by Pacific National to 

accommodate its administrative and field staff in the Sarina region, related to their operations on the 

Goonyella railway and North Coast railway. This single Office building, and related car parking area, is 

to be constructed as part of the accommodation facility, utilising similar demountable buildings fixed in 

place as permanent structures in accordance with relevant building codes. 

The current Pacific National office and staff amenity premises, located in Broad Street, Sarina, operate 

24-hours, 7 days a week to accommodate the non-stop nature of their coal and freight rail operations. 

While this facility is within commercial premises, it is still restricted in terms of car parking available, and 

its proximity to nearby residential uses. By locating this new facility as part of a workforce 

accommodation development, Pacific National will be able to develop for itself a purpose-built office and 

amenities facility that has adequate car parking, and the required 24-hour access required of its 

operations, without being constrained by nearby existing sensitive uses. 

While it is recognised that the location of this office on open space-zoned land, outside of the Sarina 

commercial area in the town’s main street is inconsistent in terms of land use context, the nature of 

Pacific National operations and their need to be within close proximity to the Jilalan railway complex and 

main roads justifies this location and the development of this office use. 

Environmentally Relevant Activity (ERA) 63 

The development and operation of a worker’s accommodation facility will require an on-site sewage 

treatment facility. For the purposes of compliance and licensing, a sewage treatment facility is 

categorised under Section 2 of the Environmental Protection Regulation 2008 as being an ERA 63, 

which is identified as “operating 1 or more sewage treatment works at a site that have a total daily peak 

design capacity of at least 21EP”. 

In support of the Non-resident Workforce Accommodation, a separate development application for an 

ERA63 will be prepared and lodged with the Department of Environment and Resource Management 

(DERM). Many aspects of this development application and proposed accommodation facility are reliant 

on aspects of this ERA application. During its assessment of the application, Council is requested to 




assume that the wastewater treatment system proposed for the development will be located on site, and 

that the wastewater produced from this treatment may be utilised for irrigation of the golf course, 

depending on the level of treatment achieved and quality of wastewater. 

Council will be provided with details about and a copy of this separate application when it is submitted, 

as well as the approval and licensing of the ERA that should follow. 

Traffic, Transport, and Access 

The site was previously subject of a development application for a temporary workers accommodation 

facility, which was approved and constructed to house the workforce that undertook the related upgrade 

of the Jilalan Railway Yard complex. That facility housed in excess of 200 workers, and provided for a 

significant number of private vehicle car parks for staff while they were staying at the facility on-shift. 

During prelodgement discussions with both Mackay Regional Council and the Department of Transport 

and Main Roads, the potential traffic and transport impacts of the proposed facility were identified as 

being a key issue that this application and the operation of the facility would need to address and 

appropriately mitigate any impacts through operational measures such as using buses for staff transport 

to site, and restricting private vehicle parking offset with bus services from nearby towns and airports to 

collect employees as they arrive to stay for rostered periods. 

In support of this application TTM Traffic consultants have prepared a Traffic Engineering Report which 

identifies and addresses any foreseeable traffic and transport impacts from the operation of the facility, 

and makes recommendations regarding the management of vehicle moments from the site. In particular 

this report forecasts the future traffic impacts expected from the operation of the facility, against the 

forecast traffic and intersection traffic volumes obtained from recent surveys and vehicle counts in the 

area. The recommendations are consistent with the intended operation of the facility once completed. 




8 CONCLUSIONS AND RECOMMENDATIONS 

The application seeks a Development Permit for a Material Change of Use for an Undefined Use (Nonresidential 

Workforce Accommodation) and Commercial Premises (Office) on land located at Armstrong 

Beach Road, Sarina and also described as part of Lot 1 on RP726644. 

Through the assessment and consideration of the proposed development, the following key conclusions 

have been determined: 

• The site has been previously subject to an approved development application for a similar worker 

accommodation facility related to the recent expansion of the Jilalan Railway Yard. 

• While the accommodation and office facilities are proposed on a site zoned as Open Space in the 

relevant planning scheme, it is land identified a surplus by its owner, the Sarina Golf Club, and is 

not currently or proposed to be used for public active or passive recreation.; 

• Although traffic generation has been identified as being a key issue to be addressed by the 

development, the enclosed Traffic Engineering Report prepared by TTM Traffic has assessed the 

potential impacts expected from the facility and made recommendations to ensure that the 

operation of the facility is not detrimental to the immediate local road fronting the development, or 

the nearby State-controlled road (Bruce Highway). 

• The Sarina Shire Planning Scheme Strategic Framework requires that the “extensive ecological 

resources and landscape values of the Shire are protected and integral to the Shire’s character and 

tourist potential”. The proposed Non-resident Workforce Accommodation facility will not jeopardise 

the ecological resources or landscape values of the local area, given its location on a site which has 

been previously utilised for a similar use. 

• The Desired Environmental Outcomes (DEOs) contained in Part 3 of the Sarina Planning Scheme 

state that the Sarina Shire area is “a prosperous community with a sustainable industrial and rural 

base, with a wide range of employment opportunities due to the diversity of local industries, 

including the Port of Hay Point, the Plane Creek Sugar Mill and Distillery, Jilalan QR maintenance 

yards, the cane industry and new rural industries”. It also states that Sarina township performs a 

“strong role as the main service centre for the Shire”. The proposed Non-resident Workforce 

Accommodation will allow for a larger workforce to exist within the Sarina Township in support of 

major projects underway or proposed in the region. Accommodation for this workforce will allow 

existing and new industries to continue with certainty that workers can be accommodated. The 




facility’s close proximity to the township will contribute to making Sarina Shire and the township an 

even more prosperous community in the region, and continue its role as the main service centre in 

the Shire and this part of the Mackay region. Addressing the DEO’s is further supported by the 

social impact assessment report prepared by Warwick Powell (Director, Urban Advisory - SINO 

Australia Investment & Trade Group) and enclosed at Appendix G. 

• The Draft Mackay, Isaac, and Whitsunday Regional Plan defines the site within the Regional 

Landscape and Rural Production Area of the regional plan, and as such warrants consideration of 

the development against the Regulatory Provisions of the Regional Plan. A review of the regulatory 

provisions concluded that the proposed Non-Resident Workforce Accommodation use is not 

defined as a Residential Development, or an Urban Activity according to Schedule 2 (s2.1 and s2.2) 

of the Regional Plan. Therefore the development is not a material change of use to which division 2 

of the State planning regulatory provisions for the Mackay, Isaac and Whitsunday Regional Plan 

applies. 

Ultimately, it is recommended that the application be approved as proposed, subject to reasonable and 

relevant conditions. 




APPENDICES 

A. Architectural Plans prepared by i4 Architecture 

B. Photographs of Site taken 21 st November 2011 

C. Code Compliance Statements prepared by Wolter Consulting Group Pty Ltd 

D. Traffic Engineering Report prepared by TTM Traffic consultants 

E. Landscape Concept Plan prepared by Hywel Jones Landscape Architects 

F. Detailed Site Survey plan prepared by WS Group 

G. Social Impact Assessment prepared by Warwick Powell (Director, Urban Advisory - SINO Australia 

Investment & Trade Group) 

H. Correspondence from BMA providing a pre-commitment to occupy part of the NRWA facility.

DEVELOPMENT APPLICATION ASSESSMENT REPORT Proposed ...

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