COUNCIL
MINUTES
Unconfirmed
Minutes
Special Council Meeting
6:30pm, 01 August 2023
Council Chamber (Level 1), Civic Centre,
23 Dundebar Road, Wanneroo
wanneroo.wa.gov.au
COUNCIL
MINUTES
Unconfirmed
Minutes
Special Council Meeting
6:30pm, 01 August 2023
Council Chamber (Level 1), Civic Centre,
23 Dundebar Road, Wanneroo
wanneroo.wa.gov.au
Unconfirmed Minutes of Special Council Meeting
held on Tuesday, 01 August 2023
CONTENTS
Item 2 Apologies and Leave of Absence
Item 3.1 Mrs C McAlaney, Mindarie
Item 3.2 Mr McAlaney, Mindarie
Item 3.3 Mr E Coates, Quinns Rocks
Item 3.4 Mr McAlaney, Mindarie
Item 3.5 Ms T Hutchins, Quinns Rocks
Item 3.6 Mr R Percival, Buckland
Item 3.7 Mr V Partridge, Tapping
Item 3.8 Mr J Ledsham, Wanneroo
Item 3.9 Ms S Wright, Quinns Rocks
Item 3.10 Mrs D Newton, Wanneroo
Item 3.11 Mr C Treloar, Burns Beach
Item 3.12 Ms J Dal Pozzo, Jandabup
Item 3.13 Miss I Henkel, Mindarie
Item 3.17 Ms H Sara, Quinns Rocks
Item 3.19 Mr K Gavan, Quinns Rocks
Item 3.20 Ms K Wheatcroft, Quinns Rocks
Item 3.21 Mr K Tasker, Mindarie
Item 3.22 Ms N Sangalli, Quinns Rocks
Item 3.24 Mrs N Sangalli, Mindarie
Item 3.25 Mr M Carter, Eglinton
Item 3.26 Mr K Carter, Eglinton
Item 3.27 Mr S Faulkner, Quinns Rocks
Item 3.28 Mr S Goodwin, Mindarie
Item 3.29 Ms V Brown, Quinns Rocks
Item 3.30 Mr K Tasker, Mindarie
Item 3.31 Mr E Coates, Quinns Rocks
Item 3.32 Mr R Swinnerton, Quinns Rocks
Item 3.33 Mrs D Newton, Wanneroo
Item 3.34 Mr M Arnold, Quinns Rocks
Item 3.35 Mrs C McAlaney, Mindarie
Item 3.36 Mr L Sweet, Quinns Rocks
Item 3.37 Ms I Fraser, Mindarie
Item 3.38 Ms C Wright, Merriwa
Item 3.39 Ms J Stacey, Quinns Rocks
Item 3.40 Mr J Keenan, Mullaloo
Item 3.41 Mr S Whitehead, Quinns Rocks
SCS01-08/23 Project Update - Former Quinns Rocks Caravan Park Site
Minutes
Mayor Aitken declared the meeting open at 6:34pm and read the prayer.
Good evening Councillors, staff, ladies and gentlemen, this meeting today is being held on Whadjuck Nyoongar Budjar and I would like to acknowledge and pay my respects to Elders, past, present and future. I thank all past and present members of the community that have supported the City to better understand and value Nyoongar culture within the City of Wanneroo. I invite you to bow your head in prayer:
Lord, We thank you for blessing our City, our community and our Council. Guide us all in our decision making to act fairly, without fear or favour and with compassion, integrity, wisdom and honesty. May we show true leadership, be inclusive of all, and guide all of the City’s people and many families to a prosperous future that all may share. We ask this in your name. Amen.
Item 1 Attendance
Councillors:
CHRIS BAKER North Ward
SONET COETZEE North Ward
BRONWYN SMITH North-East Ward
GLYNIS PARKER North-East Ward
JACQUELINE HUNTLEY Central-East Ward
PAUL MILES Central-East Ward
HELEN BERRY Central-West Ward
FRANK CVITAN, JP Central Ward
JORDAN WRIGHT Central Ward
NATALIE HERRIDGE South-West Ward
VINH NGUYEN South-West Ward
JAMES ROWE, JP South Ward
BRETT TREBY South Ward
Officers:
DANIEL SIMMS Chief Executive Officer
MARK DICKSON Director, Planning & Sustainability
HARMINDER SINGH Director, Assets
DEBBIE TERELINCK Director, Community & Place
NOELENE JENNINGS Director, Corporate Strategy & Performance
NATASHA SMART Manager, Council & Corporate Support
PAUL GREER Manager Property
JACKIE KALLAN Manager of Communication and brand
TINA BALTIC Council Support Officer - Minutes
CHANTEL HELDT Council Support Officer
YVETTE HEATH Council Support Officer
ALEX DUNN Property Specialist
Item 2 Apologies and Leave of Absence
There were 77 members of the public and 1 members of the press in attendance.
Questions and Statements Received in Writing Prior to the Meeting
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement In my research of campsites, degradation of the area occurs. While there has been an assessment of species, it appears no study has occurred of long-term degradation to the area, such as biophysical impacts. I would also like to understand consultation outcomes with First Nations Peoples, regarding this project.
Response by Director Corporate Strategy & Performance
There are three aspects to the response to this question, the first relating to existing bushland areas and the second and third relating to the proposed development.
The first aspect involves enhancing the protection of bushland areas. As provided in the recommended resolution in the report to Council, the bushland areas will be excised as Crown (State) land (rather than the current freehold status) under a management order for ‘Conservation’. This will separate the bushland’s land tenure from the former caravan park site.
The second relates to the lease, and how it will ensure the development does not contribute to site degradation. Council has not yet resolved to progress to formal lease negotiations, with this being a matter for consideration at the upcoming Special Council Meeting. Based on the previous Council resolution in July 2022, discussions have only occurred with the proponent. If a lease is negotiated, it will include obligations relating to site condition and maintenance, during both the development and operational phases.
The third aspect of the question relates to the planning approval process. Environmental and cultural heritage matters will need to be further considered and assessed as part of a future development application should Council decide to proceed with the proposal. If development takes place on Lot 211, an updated Foreshore Management Plan will be required for the affected area. An updated management plan would address heritage-related and environmental matters and provide guidelines on how they should be managed if any are identified through the development application and approval process. The City is not the determining authority for the development approval. The WAPC and Department of Planning, Lands and Heritage will ultimately decide with potential conditions to this effect at the development application stage.
On the part of the question relating to First Nations Peoples, the City’s Ni Kadadjiny Koort (Reconciliation Action Group) was informed of the project and engagement process, with the City encouraging the group and its members’ networks to participate in the engagement process. Information was also shared with the City’s Multicultural Reference Group in a similar manner. Furthermore, a Traditional Owner provided feedback suggesting that there is Aboriginal heritage in the local area, but not specifically at the development site. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question Climate change is still not completely understood however it is clear that there is an urgent focus required, even at a micro level. Commercial development is an attractive proposition (financially) for councils. Will you guarantee no further expansion across the reserve for 50 years, if you agree to this development, at the loss of public amenities?
Response by Director Corporate Strategy & Performance
For clarification on the suggested loss of public amenity, the current proposal relates to the former caravan park site at Lot 211 Quinns Road, Mindarie. It does not relate to other parts of Lot 211, such as native bushland areas, the sealed car parks and buildings (such as Portofino’s, Sea Spice, the Quinns-Mindarie Surf Life Saving Club and Community Centre premises). The only current amenity in the former caravan park site is overflow parking, which is a temporary arrangement during limited hours in peak periods over Summer. In contrast, the proposed development will provide enhanced amenity, in the form of accommodation, café and function facilities (plus a lawn area).
If Council determines to proceed with lease negotiations and a lease is entered with the proponent, the future use of the land after the expiry of the lease will be a future decision of Council (based on the circumstances at the time).
The site is currently not a Crown land ‘reserve’, but is actually freehold land. However, the recommendation to Council is for bushland areas to be excised from Lot 211 (with the excised area to be subject to land survey) and vest that land in the State as Crown land under a management order to the City for the purpose of ‘Conservation’. This will provide a further level of protection for areas not currently proposed for development. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question Have any of the Councillors or Mayor ever visited Clarko Reserve Trigg or Tom Simpson Park Mullaloo to see the benefits' that these open spaces bring to the public and if not visited, why not? Thanks Response by Director Corporate Strategy & Performance
No response is required, other than to note that whether the City’s Council Members have visited parks in other areas is not relevant to the matters for consideration at the upcoming Special Council Meeting. The current Council item follows a series of prior Council resolutions relating to the use of Lot 211 and the investigation of the former caravan park site for tourism purposes.
As further context on Lot 211, the site is freehold land, it is not a Crown land ‘reserve’, whereas the parks noted in the question are Crown land. Clarko Reserve is Crown land managed by the City of Stirling and Tom Simpson Park is Crown land managed by the City of Joondalup. |
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SCS01-06/23 Project Update – Former Quinns Rocks Caravan Park Site Statement Sun protection in local government - Australia has one of the highest rates of skin cancer in the world and Western Australia is second only to Queensland in terms of the incidences of melanoma. The Cancer Council of WA encourages all Local Governments to consider opportunities to reduce the risk of cancer, including skin cancer, in the development of Local Government Public Health Plans.
The City of Wanneroo web site reveals that its Public Health Plan was first prepared in 2014/15 and subsequently reviewed in 2016/17. The document does not appear to have been updated since and does not refer to skin cancer as a public health issue at all.
The Cancer Council of WA states that the implementation of healthy public policy can reduce the risk of a number of chronic diseases, including cancer, and must be a shared responsibility among all levels of government in Australia. In particular they state that Local Governments are the level of government closest to the community and so are well placed to implement policies, plans, and strategies that help enable West Australians to lead healthy, active lifestyles.
“The local government sector is well placed to support efforts to reduce exposure to ultraviolet (UV) radiation in the community. For example, it has an integral role in the town planning process, is responsible for planning and development approvals, controls and operates a range of recreational and community facilities and organizes and sponsors outdoor events.” Sun protection in local government - Cancer Council WA (cancerwa.asn.au) Questions
1. Given our state’s high rates of skin cancer, does the Council agree that the basic provision of shade in the public domain is an effective way to mitigate the impacts of UVR and hence have a positive impact on public health? 2. The Frederick Stubbs Park along the Quinns foreshore has a shade sail over the playground while the remaining grassed area has no shade for visitors to seek protection from the sun. The plans associated with the proposed redevelopment of the Frederick Stubbs Park Carpark did not show any shade measures. The park in front of the Quinns Mindarie Surf Lifesaving Club has a couple of shade shelters and several trees. What planning has the Council done to effectively address the need for shade along this section of the coast? 3. Has the Council conducted a shade audit, as recommended by the Cancer Council of WA, at its coastal parks? 4. Does Council agree that a decision to extend the coastal parkland to the south over the Quinns Caravan Park site would provide an obvious opportunity to provide shade in the form of trees and shelters and hence benefit the community in offering UVR protection? Local governments, public health and cancer prevention: Actions that will make a difference to your community. Funding In deliberating their decision about the future of Quinns Caravan Park site some Councillors will rightly be weighing up the relative costs involved in the potential extension of the coastal park to the south. While parks are of enormous benefit to the community, they do have an establishment and ongoing cost.
Question: 1. Has the Council investigated any funding opportunities via grants and/or partnerships with state and federal government to help cover the costs involved? Response by Director Corporate Strategy & Performance
The statements and questions relating to sun protection are noted and will be passed to the relevant sections at the City dealing with park and playground development for information.
However, the statements and questions are not relevant to the matters for consideration at the upcoming Special Council Meeting. For context, the current Council item follows a series of prior Council resolutions relating to the use of Lot 211 and the investigation of the former caravan park site for tourism purposes.
On the question relating to sun shade, the City has previously installed shade structures at community parks and beachfront areas. This typically involves 6 sites having new structures installed annually under the City’s Install Shade Sail Program.
On the question relating to funding, as noted in the report to the Special Council Meeting, in the event Council resolved to develop a park, the source of funding and the financial impact on the City’s budget and other projects would need to be considered.
It is important to note that Council resolved in 2022 to undertake further community engagement to obtain the community’s views for the preferred use of the former caravan park site. Council has not resolved to develop the site for other uses and has not resolved to investigate funding and grants opportunities for such alternative development. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Why did the council decide not to include the option to develop this space as a community open space with beach access included in the extensive community consultations that were solely focused on options for private development of some kind of tourist accommodation park? Was this an oversight or a deliberate strategy for ensuring commercial use rather than a public facility, if so what is the reasoning behind it?
Response by Director Corporate Strategy & Performance
The stages of Council decisions on the status of the former caravan park site are summarised in the background section of the current report to Council.
The process commenced in 2012, when Council resolved to close the former caravan park and investigate future operations (item CB03-11/12).
Subsequently, Council approved a business case and authorised an expression of interest process in September 2020 (item CS03-09/20). Public questions at the time focused on the potential expansion into bushland areas and the impact on parking availability, in contrast to the recent interest in developing a park on the former caravan park site, noting some questions had expressed interest in seeing community access and use of the site (which can still occur under a hospitality and tourism development). In response, Council’s resolution specified that the EOI should be weighed against expansion to favour development on the former caravan park footprint.
Following the EOI process, Council resolved in July 2022 to identify a preferred development candidate and undertake further community engagement to obtain the community’s views for the preferred use of the former caravan park site.
One of the views expressed by the community during the recent process has been in favour of community access to the site, including some in the participants expressing support for an alternative community park development. This has been acknowledged in the report to the Special Council Meeting and Council will have regard to the engagement outcomes when making its decision. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement As the proponent/director and shareholder for the Quinns caravan park proposal, I have provided answers to the council to all of the questions put forward however some of the questions are difficult to answer as the proposal is still in very early stages however I would like to address some of the important questions here.
1. Although we didn’t need to form the relevant companies until approvals had been granted we acknowledge the publics concerns and have now formed the companies that would own and operate this venture (under a lease agreement). Which is “Eco Tourism Pty Ltd as trustee for the Quinns Resort Unit Trust”. All of the shareholders are professional businessmen with not only successful companies in Perth but also associated with our other resorts and management companies which we are expanding throughout Australasia. 2. Following numerous comments and discussions with the community we have now modified the design and look of the resort and we have even advanced glamping units design to accommodate the wind, sun and rain. In addition we have also moved the café function area closer to our larger car park and the beach access point to make it easier for the public to access as well as providing more privacy for guests staying in the resort. We know that this project will be world class and a first for Australia at this level. 3. I have been aware of many other opportunities to develop a glamping accommodation and resort in Western Australia but I see Quinn’s/Mindarie as the ideal location for my first operation in Australia. 4. Regarding community access we are fully aware of the advantages and we welcome public access and participation within our open hours from 7am to closing, seven days per week. In the case of a private event, access may be limited and we will notify the public at least two months in advance. In addition we will also introduce a community discount card for everything from beverages to accommodation. 5. We see ourselves becoming an integral part of the community, working with local groups, schools and businesses and we would like to employ as many locals as possible. We will also run various activities and small Sunday sunset concerts for the public to enjoy (for free) and we will welcome people on their morning walks to pop in & buy a coffee and/or breakfast. 6. Apart from working together with the community we would hope that the increased tourism, marketing and recognition across Western Australia will be a huge benefit to other businesses in the area. 7. Throughout this process we have been open with our ideas, discussions, designs and responses with the City of Wanneroo and will continue to work with them and the community in a positive manner. We are very confident that the finished resort will be to a world class standard and that everyone will be proud it’s part of their community.
Thank you for your support.
Regards, Russell Percival |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement Dear City of Wanneroo Councillors, We are writing to express our wholehearted support for the redevelopment of the former Quinns Rocks Caravan Park site as an ecotourism facility. As small business owners living and working in the area, we believe that this proposal offers great potential for boosting tourism and corporate events within the region.
Over the years, we have filmed numerous corporate events in and around the Perth metropolitan area and we have often come across businesses seeking unique and picturesque locations to host their functions. The proposed ecotourism development at Quinns Rocks offers an unparalleled opportunity to cater to this demand, attracting businesses from the city and beyond for both midweek and weekend events. The proximity to Perth, combined with the serene coastal setting, makes it an ideal destination for corporate gatherings, team-building activities and other corporate functions.
What makes this proposal even more compelling is the focus on ecotourism and the inclusion of glamping-style accommodation. This eco-friendly and modern approach to tourism aligns perfectly with the growing demand for sustainable and immersive experiences. As photographers and videographers, we believe that the natural beauty of this location would provide a remarkable drawcard for both corporate events and tourists seeking an extraordinary escape from Perth and beyond.
The proposed facilities, including the café, event space and lawn area, offer versatile spaces for various community and corporate activities. This diversity provides opportunities for a wide range of events, such as fitness programs, sunset concerts, business meetings, and family celebrations. In addition, the wheelchair accessibility and other provisions demonstrate a commitment to inclusivity and ensuring that everyone can enjoy this unique facility.
Beyond its appeal to businesses, the proposed ecotourism development also has the potential to become a unique flagship attraction in Western Australia. This uniqueness will contribute to putting Quinns Rocks and the City of Wanneroo on the map for eco conscious travellers and adventure seekers looking for a truly special experience.
In conclusion, we fully support the ecotourism proposal for the redevelopment of the old Quinns Rocks Caravan Park site. As photographers and videographers who frequently collaborate with businesses in the region, we are confident that this project will have a positive impact on tourism and corporate events within the City of Wanneroo. It represents a fantastic opportunity to establish a unique and eco-friendly facility that will attract businesses and individuals from far and wide and will provide benefits to the whole community.
We trust that the City of Wanneroo will see the immense value in this proposal and move forward with its development for the betterment of our community and our region's tourism sector.
Sincerely, Vince & Karen Partridge
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I'm the Head of Sport at Butler College and live locally as well. I hope this project gets approved as it's currently an eyesore and it's an unsafe area when I go on my evening coastal walks on the weekends with my wife and my baby girl. As a resident I'm embarrassed by the rubbish and the activities that have been taking place in that location for the past 10 years! If this project doesn't get approved at this meeting, it might be another 10 years before anything happens there.
This Glamping Resort will be a place I take my family to enjoy a coffee, invite family to stay at when they are visiting and to watch some of the free acoustic and jazz sunset shows. My high school students I've spoken to are excited about the eco design and a few may end up working there. I listened to the last council meeting and as a result I won't be attending this one. The last meeting ended up being members of the public yelling at the staff and councillors for 3 hrs who were supportive of the project, making the hostile environment nearly impossible for locals who wanted to speak positively about the glamping.
Like most members of our community we hope the councillors think about us when voting, the quiet supportive residents of the City of Wanneroo who can't wait to have this world class resort on our doorstep! This was shown with the results of the random door knocking survey recently completed and not the loud complaining few that have been pressuring others to sign their factually incorrect petition.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I believe this concept would be fantastic for the Northern suburbs. As a school teacher at Quinns Baptist college, I can see many uses for this project that would be beneficial to the school and students. The restaurant/ function area will be perfect not only for the school balls/ formals but also for are teachers workshops, getaways and end of year functions. We are very limited in regards to function centres cafes etc. in the Northern suburbs. Why not utilise beach front accommodation/ cafes/ restaurant areas in a relaxed community like Quinns.
Many students take part in physical education, outdoor education subjects that involve being at the Quinns/Portofino’s beach area. To be able to enjoy facilities provided by this development would be ideal. This would also be a great opportunity for inter-school competitions, productions and excursions to provide local accommodation for those travelling from far south, being so close to the local schools.
We hope you consider factors such as these stated above as we are a growing community at Quinns & this development would be favourable for schools and families.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question For the benefit of residents; Is it the case that the proponent does not have to submit all or any of the development detailed in this report when submitting a development application. unless it is stipulated in the lease? These will be asked at the meeting following research.
Response by Director Corporate Strategy & Performance
It is unclear what this question is referring to. For the purpose of the current response, it is assumed ‘development detailed’ means the conditions for community access noted in the report for the current item and in comments from the proponent.
In order for the proponent to submit a Development Application it will require the City’s consent as landlord / landowner. As part of this landlord review and the lease negotiations, the City will have regard to the community’s clear interest in having access to the site and in ensuring that the development and the proponent’s performance of the lease provides for this access.
As discussed in the report, the design remains at a preliminary stage.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I am very much in favour of this development. It would be very beneficial for me and my family as the employment opportunities would be great. There are enough parks in the area. This is dead bush land and would be great to use it for great business ideas.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I would like to provide a statement for our support for the redevelopment of the Quinn’s Rock Caravan park to a Glamping Resort.
We have been City of Wanneroo residents for over 30 years and our local beach is Quinns. Recently reading the City of Wanneroo newsletter showing all the projects underway or completed in the most recent financial year, I do not believe there is a need for another park but instead fully support the commercial glamping project, which I believe would bring a lot of opportunities for my grandchildren and the community alike. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question The City of Joondalup has provided a great off-beach recreational space at Mullaloo Beach which is used by many people coming from far afield. As an 18 year old my friends and I have often travelled from Mindarie and Quinns to make use of the shady lawned areas and wish we had a similar area to use locally. Frederick Stubbs Park has no shelter and the park at Portofino’s is often crowded. When will the City of Wanneroo provide these much needed off-beach recreational zones for our local community?
Response by Director Corporate Strategy & Performance & Manager Community Facilities
The provision of shade in the former caravan park site is not relevant to the matters for consideration at the upcoming Special Council Meeting. However, for context on the provision of shade and as noted previously in relation to Question 3.4, the City has previously installed shade structures at community parks and beachfront areas. This typically involves 6 sites having new structures installed annually under the City’s Install Shade Sail Program.
An example is the shade structure in Newman Park at Brazier Road in Yanchep (immediately north of Orion Café), which was replaced in 2020.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question On page 39 of the agenda for the meeting 1 August 2023, it is stated the proponent has never expressed concerns regarding noise from the Surf Club or surrounding businesses. Can this be clarified as in the confirmed minutes of the Council meeting held on the 12 July 2022 it states under the Quinns Mindarie Surf Life Saving Club (Inc.) (QMSLSC) the Proponent has advised Administration the following in relation to the QMSLSC proposal: It is concerned with the likely number of QMSLSC members utilising the area and overlooking its proposed development – potential music and verbal noise emanating from the area which could interfere with wedding ceremonies, events and guests trying to sleep in the glamping tents. Was this the case or not?
Response by Director Corporate Strategy & Performance
Whilst the proponent had expressed preliminary concerns at its Expression of Interest stage that an expansion of the Quinns-Mindarie Surf Life Saving Club to include an outdoor decked area would impact guests in nearby glamping tents, the proponent has been able to adjust the design in its discussions with the City in the past 13 months and based on feedback during the engagement process. To reiterate, this involved a particular type of expansion to the QMSLSC premises, rather than any objection to the current noise levels.
The proponent has modified its design to move the glamping accommodation further from the QMSLSC premises, with the proposed café and function centre now closest to the QMSLSC. Further, community feedback regarding wind impact has meant that the proponent is planning to use materials which are more likely to contain noise and less likely to be impacted by external noise.
Finally, as noted in the report for the current item, discussions between the City and the proponent have indicated the proponent is keen to work with the QMSLSC. The proponent was supportive of meeting with the Club, which would provide an opportunity to consider issues such as times of operation, noise management and potential for collaboration.
If Council resolved to proceed with lease negotiations, the proponent would welcome a meeting with the QMSLSC as soon as possible and hopefully this is something QMSLSC would reciprocate.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question 1. On page 39 of the agenda for the council meeting being held on the 1 August 2023, the proponent has indicated the intent is to hold 1 - 3 functions per week in peak season. Most of these are likely to be weddings and the area would be shut for community use as already advised. This indicates every weekend in the peak season the residents would not be able to access this space. Most weddings take place on weekends. The small lawned area on the plan is unlikely to be used if residents cannot get food or drinks or there is no entertainment as the infinity pool and playground equipment have been removed from the plans. What are the council lease conditions going to be if this is approved (I hope it is not) to safeguard against residents being excluded in peak season. Council is asking the community to trust a private developer that community will get access to this site. The community need to trust the council who we elect that there will be lease safeguards in place to ensure community have access if council pass this proposal to allow a private developer to use Lot 211. I would suggest no exclusion to community on Sundays in peak season.
Response by Director Corporate Strategy & Performance
The Council has not thus far resolved to proceed with lease negotiations, which means that the exact terms of the lease remain to be determined. However, the proponent has provided responses on how the community access may be facilitated, with this information included in Attachment 1 to the report.
Question 2. The agenda for the 1 August 2023 Special Council Meeting has several recommendations. One of these recommendations number 4 states AUTHORISES the Chief Executive Officer or a nominee of the Chief Executive Officer to negotiate terms including, for the ground lease, conditions to enhance community amenity and access to the leased site, execute all documentation and comply with all applicable legislation as is required to effect Item 3. above, noting that the execution of an agreement for lease and a ground lease remains subject to Item 5. below;
Given the city is about to get a new CEO, a new legal person and new Director of Community & Place and is also soon to have local government elections that could see a new Mayor and several new councillor's should this item not be adjourned until those ultimately responsible going forward have had chance to read the information and understand it. Last month Cr Rowe said this was just part of the process and not the final decision. This recommendation does not say anything is coming back to councillors for their final consideration and endorsement if this is approved. It provides no safeguards for the community. Has council considered waiting until the new CEO and staff are recruited, in place and appraised of this item and the local government elections have taken place so those agreeing to a new leases are the same as those making decisions now. October is only a few weeks away?
Response by Director Corporate Strategy & Performance
The City of Wanneroo is a large organisation which should not need to stop operations pending a change in personnel.
In any event refer to item 5 of the recommended resolution, which is clear that a report will be presented to a future Council meeting.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I oppose the development of a glamping venue at the old Quinn’s rocks caravan park. The area should be made into a park for the community. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question Is the main reason for the eco park for the shire to make dollars and revenue rather than a community public space to serve future generations?
Response by Director Corporate Strategy & Performance
Refer to the background section of the current report for the context to the project. This includes the stages of Council decisions on the investigations on the future of the former caravan park site, the noting of the site in the City’s Economic Development Strategy and Action Plan 2016 – 2021 and the completion of a business case on the potential viability of the development.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I urge all councillors to vote "no" this evening. The proposal before you offers nothing for the community. A successful venue will be used by the business for its customers every weekend. An unsuccessful venture will quickly fall into disrepair. Every facility it offers is already available to the public within Mindarie. The city is handing control of a large parcel of land to a private developer for his own gain for a 20+ year period. All for a tiny benefit to the City's purse. Now is the ideal time to press the stop button and ask questions that have not been fully addressed; Is this proposal the best use of the site - not is this proposal the best use of the site as an accommodation business? What use or mix of uses would provide the best community value? What would such options cost and what funds are available? Like many others, I personally believe that there are better uses for the site. I recognise that these come with costs and I recognise that some development such as parking, toilets/showers or a kiosk may be warranted. I encourage all councillors to reflect on the proposal before them and then to vote so that alternative uses for the site can be investigated properly by voting "No". |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement 1. With the subdivision of the larger Quinns blocks allowing more housing in ‘Old Quinns” and the development of new subdivisions such as Catalina south of Mindarie the population of the Quinns/Mindarie area is increasing rapidly. Membership of the QMSLSC has grown over the past few years with many young families enjoying the Sunday morning activities at the club. Parking is at a premium already with the overflow carpark on the site of the caravan park land already well used during the Sunday morning time. Portofino’s and Sea Spice Indian restaurant also use the existing parking bays.
Response by Director Corporate Strategy & Performance
The demand for parking close to the beach and restaurants is recognised. The parking study recommends providing timed restrictions on the bays closest to the beach and restaurants to improve access to these bays throughout the day. The City will be looking to implement two hour time restrictions this year.
Question 2. The proposal to utilise the waste water sump land located metres away as an additional parking area is not a safe, viable alternative for young families and elderly residents who will have to transport themselves, their surfboards, picnic supplies, sun shelters, pushers and supervise young children alongside a very busy road used by buses, trucks and a lot of cars. Surely a safer parking option would be to utilise a bigger part of the land area adjacent to the existing surf club. Response by Director Corporate Strategy & Performance As detailed Section 5 Option 4 of the parking study, the use of land with direct beachside access for car parking may not necessarily provide the most community benefit for the use of the land and hence other options, including extending the existing car park were considered.
The sump land provides an opportunity to provide parking in the vicinity of the coastal node without requiring the clearing of vegetation and to use an existing 2.5m wide concrete shared path for access.
3. Traffic management is constantly referenced when any new development is considered. One example of a poor traffic management plan already in existence can be seen on Quinns Road at Gum Blossom Park, which has become a hub for sports teams playing on the weekend using the new facilities. Parking bays are insufficient so cars park on the grass verge on either side of Quinns Road. Families then must cross Quinns Road with all their provisions for the day, young children run ahead to find their teams and cars driving along Quinns Road must be very aware of the dangerous situation. To make matters worse there is not a pedestrian crossing anywhere on Quinns Road, Mindarie Drive, or Tapping Way. The least desirable situation as far as the surf lifesaving club is concerned is one where cars are parking up on verges along Quinns Road. Traffic management along Quinns Road has been a nightmare since the growth of the three large schools; Quinns Baptist, Peter Moyes Anglican Community and Mindarie Senior High which cater for the ever-increasing student population in the area. A redevelopment of the traffic intersection at Quinns Road and Marmion Avenue may have assisted in enabling more traffic to turn left out of Quinns Road and head south along Marmion Avenue, but the left hand turning lane, which allows cars to head north on Marmion Avenue, is blocked by the right hand lanes as soon as 3 or 4 cars, or a bus and a car or 2 or a truck and a car are stopped at the traffic lights. This causes traffic to back up and block the roundabout by Tapping Way.
Response by Director Corporate Strategy & Performance The issues that are raised are concerned with congestion and road safety at a location over 1km away from the surf club. The development of the site will not have a significant impact on either of these issues.
4. Was any research conducted and by whom, on how the council decided on such a low amount of rent on what is prime seaside land in the Northern suburbs of Perth. The QMSLSC is an integral part of the Quinns Rocks and surrounding areas fabric of social cohesion delivering water awareness training, team building and social development of the younger generation including the importance of volunteering in the community. This assists with the development of a cohesive inclusive society.
Response by Director Corporate Strategy & Performance
A market valuation was completed by a licensed valuer and attached to the current report to Council. This is consistent with the requirements in sections 3.58(3) and (4) of the Local Government Act. The valuation is based on the status of the site, including the current zoning which limits the potential uses and tenure whereby the site will be a ground lease, with the developer handling all approvals, development, maintenance and make any repairs. These aspects resulted in a market rental which is comparably lower rental than if the site was already constructed by the City and available on a ‘building lease’ basis.
Other aspects of the statements made above are addressed in the current report. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Question 1. The parcel of land between the bush and the foreshore in an urban environment is a unique piece of land. The housing and community area in close proximity is family oriented with four primary schools, three high schools, a play group, two soccer clubs and the surf lifesaving club all west of Marmion Avenue and north of Anchorage Drive. Does council consider a glamping facility, usually located in more remote settings and a function centre is in keeping with the family oriented community surrounding the area? Or would the green community space with BBQ and beach facilities the wider Wanneroo community has repeatedly requested be more appropriate for the location?
2. The original feasibility study considered a traditional style caravan park and not a facility operating as a function centre, does the council consider the current proposal has undertaken enough market research and due diligence for the proposed facility?
Response by Director Corporate Strategy & Performance
As mentioned in the Consultation section of the current report, Administration has discussed the proposal with a number of industry groups including Tourism WA and Destination Perth who have indicated their support for the proposal and the glamping concept as a whole.
3. At the previous special council meeting the council advised me that Mr Luke Percival was not a party to this proposal, yet he is named as one of the directors in the updated information supplied for this meeting. There are still a lot of unknowns in this project and it has already moved significantly away from the original feasibility study, how much further away from this proposal will we end up?
Response by Director Corporate Strategy & Performance
It was not stated that Mr Luke Percival was not a party to this proposal, rather that the involvement of Mr Luke Percival with other events is not to do with this site. The appropriate due diligence and checks have been conducted by Administration.
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I wish to ask Councillors to consider my proposal to resolve this situation through a conciliatory approach so each party can reach a great agreement for the community. |
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SCS01-08/23 Project Update – Former Quinns Rocks Caravan Park Site Statement I would like to speak against the proposed Glamping Wedding development proposed for Lot 211 Quinns Road Quinns Rocks. |
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Procedural Motion to Adjourn |
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Moved Cr Treby, Seconded Cr Miles
That the meeting be adjourned for 5 minutes for a short break.
CARRIED UNANIMOUSLY
For the motion: Mayor Aitken, Cr Baker, Cr Berry, Cr Coetzee, Cr Cvitan, Cr Herridge, Cr Huntley, Cr Miles, Cr Nguyen, Cr Parker, Cr Rowe, Cr Smith, Cr Treby and Cr Wright
Against the motion: Nil |
The meeting adjourned at 8:15pm with all Council Members present.
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Procedural Motion to Resume |
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Moved Cr Herridge, Seconded Cr Baker
That the meeting be resumed.
CARRIED UNANIMOUSLY
For the motion: Mayor Aitken, Cr Baker, Cr Berry, Cr Coetzee, Cr Cvitan, Cr Herridge, Cr Huntley, Cr Miles, Cr Nguyen, Cr Parker, Cr Rowe, Cr Smith, Cr Treby and Cr Wright
Against the motion: Nil |
The meeting resumed at 8:23pm with all Council Members present.
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I would like to draw attention to 2 significant ventures. Department of Climate Change, Energy, the Environment and Water (DCCEEW) came into effect July 2022 by Federal government, leading Australia’s response to climate change, outlook and impacts of weather events. 1 July 2023 – Aboriginal Heritage Act 2021. Those 2 events happened after discussions started. Will council please consult with DCCEEW to review the site, so we have peace of mind?
Response by Director Planning & Sustainability
In relation to sea level rise, the Coastal Hazard Risk Management Plan looks at sea level rise on City of Wanneroo coastlines. This was given due consideration. Aboriginal heritage will be taken into consideration at the relevant stage of the proposal. |
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Statement: Quinns Mindarie beach is Wanneroo beach. Fred Stubbs park was once a great park to eat at. Do you know the jobs figures for the glamping resort? Have you looked at the jobs for an open parkland precinct?
Response by Director Corporate Strategy & Performance
Have not reached that level of detail yet as the proposal is in the early stages. |
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Item 3.37 Ms I Fraser, Mindarie |
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Statement: I have been going to Quinns Beach all my life. We normally go to the grass area to have lunch and kick the football. I'm also a member of the Surf Club and when you walk into it you can tell it's reaching full capacity with the storage. Would it not be a good place to let an organization who gives so much back to the community a place to expand and grow? Our patrols on the beach are four hours, if there is a two hour parking limit how is this going to work? I urge you to please consider what you are taking from the young people in the area and all local residents if you proceed with this development. It's not only me and my friends it is upcoming generations that will be using this place, please don't put the commercial interest of a few before the needs of local residents, the people who you are elected to represent. |
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Item 3.38 Ms C Wright, Merriwa |
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Question: I have worked for a number of years in hospitality, and over the past few years it has been difficult to find staff. There were lots of news stories about staffing shortages. I have noticed restaurants have closed in Joondalup. It seems a risky act to venture into this development. How confident is the City that this business will be viable?
Response by Director Corporate Strategy & Performance
The Covid period has effected most of the hospitality industry and some have bounced back as it depends on what they are offering. Tourism WA have given a positive outcome. The City has enough to start negotiations. This is a land lease, not a building lease so there's limited risk for the City. It's actually the proponent that's going to put together the position with the tourism situation so I think we have a fair bit of information here to be able to make the decision on the first step. |
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Item 3.39 Ms J Stacey, Quinns Rocks |
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Statement: The council seem to be for the proposal. The community seem to be against the proposal. My understanding is that the way a democratic council works, we vote for members who would listen to the community regardless of personal opinions, your job is to listen to the community. It is a much-loved nature area - the Ospreys are looking at building their nest there at the moment - it is a beautiful area and a very fragile area. We need those public open spaces with natural Bushland and a bit of shade. |
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Item 3.40 Mr J Keenan, Mullaloo |
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Statement: I come to Quinns frequently. I have a different view. Quinns is not a tourism spot anymore which is why the caravan park shut down. I think you underestimate the value of a beachfront public open space of the calibre of Tom Simpson park - a world-class beachfront park will bring a lot more tourism to your area than a glamping facility catering to the wealthy. |
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Item 3.41 Mr S Whitehead, Quinns Rocks |
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Question: 1. If you are putting 2 hour parking limits, is there likely to be a negative consequence on a volunteer to keep our beaches safe?
Response by Director Assets
In this year’s Capital Works Program, Councillors allocated some funding to a feasibility study for a new carpark along Quinns Road 300m short of Quinns Beach
2. 500m is a long way to go leaving children unattended to pay for parking.
Response by Director Assets
The general walkable catchment is considered to be around 400m. The report lists that the parking area is about 300m from Quinns Beach.
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Mayor Aitken declared public question time closed at 8:47pm.
File Ref: 22542V033 – 23/231765
Responsible Officer: Director Corporate Strategy & Performance
Attachments: 20
Previous Items: SCS01-06/23 - Project Update - Former Quinns Rocks Caravan Park Site - Special Council - 20 Jun 2023 5:30pm
CS03-07/22 - Project Update - Quinns Rocks Caravan Park Re-development - Expression of Interest Process - Ordinary Council - 12 Jul 2022 6:00pm
CB03-11/12 - Future Redevelopment of Quinns Rocks Caravan Park, Mindarie - Ordinary Council - 13 Nov 2012 7.00pm
CB01-12/13 - Tender 01329 - Provision of Consultancy Services for the Proposed Redevelopment of Quinns Rocks Caravan Park, 2 Quinns Road, Mindarie - Ordinary Council - 10 Dec 2013 7.00pm
CS08-06/15 - Quinns Rocks Caravan Park Re-development - Establishment of Councillor Working Group - Ordinary Council - 23 Jun 2015 7.00pm
CS10-05/18 - Quinns Rocks Caravan Park Redevelopment Working Group - Updated Terms of Reference - Ordinary Council - 29 May 2018 7.00pm
CS03-09/20 - Business Case - Quinns Rocks Caravan Park Re-Development - Ordinary Council - 22 Sep 2020 7:00pm
CE01-06/16 - Adoption of Economic Development Strategy & Action Plan - Ordinary Council - 28 Jun 2016 6.00pm
CS04-12/20 - Response to Petition PT01-09/20 - Opposing any Expansion of the Former Quinns Rocks Caravan Park Site at Lot 211 Quinns Road, Mindarie - Ordinary Council - 14 Dec 2020 7:00pm
CS05-12/20 - Terms of Reference - Quinns Rocks Caravan Park Re-Development Community Advisory Group - Ordinary Council - 14 Dec 2020 7:00pm
CS03-07/21 - Proposed Road Closure of Unnamed and Unconstructed Road Reserve - Ordinary Council - 13 Jul 2021 6:00pm
Issue
To provide an update on the former Quinns Rocks Caravan Park site, including the outcomes of recent community engagement.
Background
Context – Preliminary comments (deferred item)
The current report follows the deferral of an earlier item (SCS01-06/23) considered at the Special Council Meeting held on 20 July 2023 (Special Council Meeting). Council’s resolution to defer the item provided:
‘That Item “SCS01-06/23 Project Update - Former Quinns Rocks Caravan Park Site” be deferred for the Chief Executive Officer to provide responses to public questions taken on notice and to provide further information on the proponent, to a Special Council meeting to be held no later than 26 September 2023.’
Administration has provided responses to the public questions taken on notice and has further information on the proponent for the project. Accordingly, the item has been returned for Council’s consideration. In the format for the current report, where possible, the report is unchanged from the report to that Special Council Meeting, other than:
a) changes
noted below as ‘update’ and formatted in bold and italics,
which relate to clarifications or additional information to the previous item,
and with deletions shown as struck through;
b) minor changes to headings and attachment numbering;
c) minor changes to the recommended resolution; and
d) more detailed information in Attachment 1, which includes further responses to questions noted at the time of the previous meeting, but which were not formally submitted by attendees at that meeting.
For further clarification, responses to formal questions at the Special Council Meeting, including:
a) written questions submitted and responded to by Administration before the meeting;
b) questions received and responded to by Administration at the meeting; and
c) questions received at the meeting, taken on notice at that time and subsequently responded to by Administration,
were recorded in the Minutes for the Special Council Meeting (as confirmed at the Ordinary Council Meeting on 18 July 2023). An extract of those statements and responses (items 3.1 to 3.49 in the Special Council Meeting Minutes are provided as Attachment 2).
Project background
The project has been ongoing for more than 10 years and has a high level of community interest (particularly in the immediate local area). For this reason, and noting the current stage and decision point for Council should not be viewed in isolation, this Background section of the current report provides a higher level of detail on the context and history of the project than would typically be the case for an Administration report to Council.
From a community information perspective, further information is available on the project ‘Your Say’ page on the City’s website and in prior Council reports (referenced in the current report).
Lot 211
The former Quinns Rocks Caravan Park site (Site) is located on a portion of the City’s freehold land at Lot 211 Quinns Road, Mindarie (Lot 211) (Attachment 3 refers).
Lot 211 has a total area of 11.042 hectares and is zoned ‘Regional Reserve – Parks & Recreation’ in the MRS.
The land is bisected by an unconstructed road reserve, running approximately south-west from Seaham Way to the foreshore reserve (Reserve 20561).
The northern, eastern and southern portions of Lot 211 are vegetated with natural coastal heath, which encompasses both good quality and degraded bushland. Unsealed tracks traverse the vegetated areas.
The vegetated areas of Lot 211 are designated as part of Bush Forever Site 397. This Bush Forever status includes the existing leased sites, Portofinos, Sea Spice and the Quinns-Mindarie Surf Life Saving Club (Inc.) (QMSLSC), the Quinns-Mindarie Community Centre (QMCC), the Site, bituminised car parks and a drainage sump (notwithstanding those areas are cleared and already developed).
The current land uses have been in place for a number of years and are considered to be consistent with the intent and function of the Parks & Recreation reserve as approved by the WAPC (which is the responsible planning agency).
Former Caravan Park Site
The Site comprised approximately 1.9 hectares of Lot 211 and a small portion encroaching into Reserve 20561.
There is evidence of camping and similar uses since the late 1940s, with Lot 211 owned by the City since 1961 and a caravan park in operation since the later 1960s.
The former caravan park closed in 2014, with buildings and other improvements being demolished and removed at that time. An aerial image of Lot 211 at the time Council resolved to commence decommissioning the Site (CB03-11/12) is attached as Attachment 4.
The Site is now vacant, with a portion used on a temporary basis for overflow parking. The temporary overflow parking was provided at the time of construction of the QMCC but was not intended to be a parking facility in the longer term. It is currently made available to service increased vehicular traffic during peak summer periods.
Due to the location of the Site, which lacks passive surveillance and passing traffic, anti-social behaviour (including drug use and off-road vehicles (including 4WDs) driving into the bushland) is an ongoing problem when the temporary overflow car park is accessible.
Project context
Below is a brief timeline of the key milestones that have occurred regarding the Site. More detailed information on each of these steps can be found in previous reports to Council.
It is important to note that the project has been reported to Council on a number of instances in the past decade and that each subsequent phase followed Council consideration.
· 2012 (CB03-11/12): Council resolved to close the former caravan park and investigate future operations. The resolution noted:
‘1. RESOLVES to operate Quinns Rocks Caravan Park as a typical modern caravan park into the future featuring serviced sites for caravans, campervans and RV's brought onsite by short stay visitors, with a limited number of park homes available for short term hire by the public; and
6. REQUIRES Administration to submit a series of reports to Council to consider a framework/plan for transitioning the site, and determining the terms of tender documentation to be publicly advertised seeking Expressions of Interest/Tenders from suitably qualified and experienced caravan park operators for the upgrade and management of the caravan park.’
· 2014: Former caravan park decommissioned and left vacant.
· 2014 - 2017: Investigations occurred to inform development scenarios as well as stakeholder and community engagement at intervals during this period. This period included the formation of the Quinns Rocks Caravan Park Re-Development Working Group (Working Group).
· 2016 (CE01-06/16): The City’s Economic Development Strategy and Action Plan 2016 - 2021 (Action Plan), was adopted. Item 1.4c) of Program 1 (Industry Diversification) in the Action Plan identified the need for market research for potential tourism park opportunities at the Site.
· 2017: Installation of temporary overflow car park, to coincide with construction of the QMCC.
· 2017 – 2019: A business case process was commenced to determine if it was feasible to develop a tourism accommodation operation on the Site. The first stage of the business case involved conducting a study to identify technical and financial considerations, as well as market conditions and overall demand for the Site’s redevelopment. Research and feedback from industry and the community, the outcome of the initial environmental and bushfire assessments, and detailed financial analysis and modelling were also included.
· 2018 – 2019: As part of the business case process, the City sought community input and feedback on the site’s future.
· 2020 (CS03-09/20): The second stage of the business case was endorsed by Council (CS03-09/20). The business case (Attachment 5 refers) was attached to the September 2020 report to Council, and is also attached to the current report to provide further context to Council and the community.
The business case focused on the economic viability of three discrete accommodation options:
a) tourist park (traditional caravan sites and chalets);
b) an eco-retreat (glamping); and
c) luxury units,
with the family tourist park and eco retreat options identified as the most viable development scenarios.
In the same Ordinary Council Meeting item, Council also authorised an Expression of Interest (EOI) program to investigate market-based interest from third party operators to develop the Site.
The resolution associated with the above noted:
1. ENDORSES the Quinns Rocks Caravan Park Redevelopment Business Case (August 2020) prepared by Pracsys (Attachment 4);
2. AUTHORISES Administration, in consultation with Pracsys and Quinns Rocks Caravan Park Re-Development Working Group, to:
a) Develop and conduct an Expression of Interest process for market-based interest from third party operators, of the former Quinns Rocks Caravan Park site (as a modern caravan or holiday park) under a commercial ground lease, noting that:
i. The Expression of Interest will invite submissions on one, or both of the following alternatives:
a. The original footprint of the former Quinns Rocks Caravan Park; and
b. The original footprint plus an expansion in accordance with item 2. a) ii. below;
ii. Any expansion to the development footprint of the former Quinns Rocks Caravan Park site will be to the extent reasonably required for the commercial viability of a development, while preserving the environmental value the majority of natural vegetation at Lot 211 Quinns Road, Mindarie (noting that the preservation of the environmental value will be an important criterion in the Expression of Interest process); and
iii. The outcomes of the Expression of Interest process, including any recommended lessee/ operator and development footprint will be the subject of a subsequent report to Council; and
b) Investigate and report to Council on options to preserve and enhance the environmental value of those portions of Lot 211 Quinns Road, Mindarie which are not required for the redevelopment of the former Quinns Rocks Caravan Park; and
3. NOTES that Administration, in parallel to the Expression of Interest process described in Recommendation 2 above, will:
a) Undertake further community engagement in conjunction with the Expression of Interest process, including site specifications and design elements, with that community engagement to include:
i. Providing information sessions for participants in the community workshops (and other interested parties) to convey further details on the Expression of Interest process; and
ii. Investigation of a reference group (or groups) or an Advisory Group (or Advisory Groups), representing local, environmental/ heritage and business/ tourism interests, to inform the Quinns Rocks Caravan Park Re-Development Working Group on the development of the Expression of Interest documentation; and
b) Engage with the Department of Planning, Lands and Heritage in relation to the land tenure of the road reserve area bounded by Lot 211 Quinns Road, Mindarie.
Council’s decision in September 2020 on the format for the EOI was a key milestone, in that Council recognised the local concerns that bushland adjoining the Site may be impacted by development. In response, Council’s resolution specified that the EOI was to target development within the original footprint of the Site, rather than an expansion into the surrounding bushland, and with due consideration to local community, heritage and environmental conservation value.
· 2021: The EOI was released to the market seeking proponents to fund, develop and operate a low impact, environmentally sensitive tourism accommodation site on the Site. The EOI document (Attachment 6 refers) was attached to the July 2022 report to Council (CS03-07/22), and is also attached to the current report to provide further context to Council and the community.
EOI proponents were invited to demonstrate their ability to operate within a small footprint (with the EOI weighted against any expansion proposal), and with criteria giving consideration to local community, heritage and environmental conservation value.
The EOI specified that any development will occur under a ground lease from the City, on the basis that the operator would be responsible for development (including approvals), construction, operating costs (including maintenance) and make good at the end of the lease term.
· 2022 (CS03-07/22): Following the evaluation of EOI submissions, Council identified a preferred proposal, together with authorising further actions:
1. NOTES the submissions received during the Expression of Interest process for the redevelopment of the former Quinns Rocks Caravan Park site on the City’s freehold property at Lot 211 Quinns Road, Mindarie;
2. DECLINES the submission from the Campervan and Motorhome Club of Australia Ltd (Attachment 4 refers);
3. NOTES the submission received from Heritage W.A. Investments Pty Ltd (Attachments 7, 8 and 9 refer) as being the preferred proposal from the Expression of Interest process for the development of a tourist opportunity on a ground lease basis in accordance with section 3.58 of the Local Government Act 1995 (WA) (limited to the existing footprint of the former vacant Quinns Rocks Caravan Park);
4. AUTHORISES the Chief Executive Officer (or a nominee of the Chief Executive Officer), to continue discussions in accordance with the provisions of the Local Government Act 1995 (WA) with Heritage W.A. Investments Pty Ltd (or a company to be established by the directors of that entity) further to item 3 above;
5. NOTES the outcome of the negotiations in Item 4 (including the lease terms and the scope of the development proposal) will be subject to:
a) a further report to Council for approval of the lease; and
6. NOTES that Administration will consult with the Quinns Rocks Caravan Park Re-Development Working Group to support and inform the discussions in Item 4 above;
7. NOTES that Administration will, commencing as soon as practicable and during the discussions described in Item 4 above:
a) release preliminary project information in relation to the preferred proposal including via the City’s ‘Your Say’ internet page;
b) undertake further community engagement in accordance with the City’s Community Engagement Policy, with that engagement to include consultation with the community to obtain their views for the preferred use of the former Quinns Caravan Park Site (whilst clearly outlining the current use, community value, constraints and environmental impacts); and
c) engage with the existing lessees of the City’s land at Lot 211 Quinns Road, Mindarie, including the Quinns-Mindarie Surf Life Saving Club (Inc.);
9. NOTES that Administration will continue to investigate, and will report to Council on the outcomes of the community engagement and the, options to preserve and enhance the environmental value of those portions of Lot 211 Quinns Road, Mindarie which are not required for the redevelopment of the former Quinns Rocks Caravan Park.
· Update – 2023 (SCS01-06/23): Following the completion of community engagement regarding the Proposal and the Site, a report was presented to the Special Council Meeting on 20 June 2023. This item is described separately in the current report.
Preferred Proposal
The development proposal preferred by Council from the EOI process had been submitted by Heritage W.A. Investments Pty Ltd and its director, Russell Percival (Proponent), noting that the Proponent intended to incorporate a new corporate entity to implement the Proposal and develop the Site, in the event that a ground lease was approved by Council.
The Proponent’s submission characterised its development proposal (Proposal) as a ‘glamping’ site, featuring holiday accommodation / glamping (furnished, air conditioned, decked and with an ensuite bathroom).
The Proposal incorporated additional facilities and amenities:
· a licensed café/restaurant structure which would act as a central hub and overlook a lawn area facing Quinns Beach;
· an events space as part of the café/restaurant catering for corporate retreats, conferences, private events (birthdays, weddings, etc.), community group meetings and activities;
· lawn area with potentially a shallow reflection pool. This area would be used by guests, family groups, yoga, small intimate concerts and some wedding ceremonies and receptions. Most of these events will be open to the public, subject to being reserved for events bookings; and
Update – Subsequent to the Special Council Meeting, the Proponent has clarified the Proposal to remove the reflection pool. This was in response to community feedback during the engagement process, which highlighted safety and maintenance considerations. More information is provided in Attachment 1. Aside from the removal of the reflection pool, the lawn area is retained, to be used as described above.
· toilet/shower block, car parking areas, laundry, office and caretaker-security/accommodation, and shaded seating area.
The Proposal will be designed and engineered to withstand high winds that are experienced at the Site. Additional mitigation measures will be used, such as wind breaks, full glass and aluminium frontages and solid eastern and southern walls which will be retrofitted in canvas.
The overall scope of the Proposal, incorporating the above features, may be described as ‘ecotourism, café and community event space’, with this being the description used in the City’s recent community engagement process.
When identifying the Proposal as the preferred EOI submission (CS03-07/12), Council did not resolve to finalise lease negotiations. Instead, Council resolved to continue discussions with the Proponent in advance of a future leasing report to Council.
The progress of the discussions with the Proponent is described in the Detail section below. In considering the status of the Proposal, it is important for Council and the community to note that there has been progress (in part informed by the engagement process), so that the Proposal as considered in July 2022 was at an earlier stage and has evolved and been refined since that time.
The discussions with the Proponent were to coincide with other project actions identified in the July 2022 report to Council and Council’s resolution, including further community engagement.
Community engagement
Council required additional community engagement as part of its resolution on 12 July 2022 (CS03-07/22, at item 7) relating to the future of the former Quinns Rocks Caravan Park:
‘NOTES that Administration will, commencing as soon as practicable and during the discussions described in Item 4 above:
a) release preliminary project information in relation to the preferred proposal including via the City’s ‘Your Say’ internet page;
b) undertake further community engagement in accordance with the City’s Community Engagement Policy; and
c) engage with the existing lessees of the City’s land at Lot 211 Quinns Road, Mindarie, including the Quinns-Mindarie Surf Life Saving Club (Inc.).’
The implementation of the community engagement strategy, together with the data and findings from the engagement process, are described in the Detail section of this report.
Further project updates
In addition to providing an update to Council on the discussions with the Proponent and the recent engagement process, the current report includes information on other aspects of the project, including:
· a parking study to identify parking patterns and occupancy rates at Lot 211;
· the progress of Administration’s discussions with representatives of the QMSLSC;
· Administration’s investigations on the history of Lot 211 being transferred to the City; and
· consideration of how the City may respond to the findings from the engagement process, including options to address concerns raised by sections of the community.
Update – Following questions from the public and Council Members at the Special Council Meeting regarding the company which will operate the development and on the status of the lease, the current report also includes information on:
· the progress made by the Proponent in establishing the company intended to operate the proposal, should Council decide to proceed; and
· further answers and clarifications to questions raised at the Special Council Meeting regarding this item.
Detail
Update - Further information provided following Special Council Meeting
During the Special Council Meeting on 20 June 2023, a number of questions were raised by the community relating to the subject of the report. Since then, Administration has provided detailed responses to all relevant enquires.
These responses were provided in the minutes of the Special Council Meeting, which can be viewed on the City’s website. Since then, further information has been provided by the Proponent and sourced by Administration. This further information has been provided within Attachment 1.
Engagement consultant and strategy
Administration contracted community engagement specialist Viv Warren of Viv Warren Consulting (Viv Warren) to develop and conduct the community engagement strategy for the Quinns Rocks Caravan Park Project.
In alignment with the City’s Community Engagement Policy, Viv Warren developed a strategy to further engage and consult the community. The strategy was endorsed by the Working Group.
Implementation of community engagement strategy
The engagement process commenced in December 2022 and concluded in March 2023 and involved two phases:
· First Phase: Information sharing and direct, smaller group and one-on-one engagement:
a) Project information was shared online, primarily via the Your Say page. This included a concept plan of the proposed development (supported by an aerial overlay with the current site), a video fly-through and a detailed Question and Answer document, with the latter document being updated on an ongoing basis when questions had been raised by Council Members, the community and project stakeholders.
b) Qualitative feedback was invited from key stakeholders including one-on-one meetings with local residents, businesses and other interested parties, question and answer sessions, email and phone conversations, online feedback and a community drop-in session. This has provided in-depth responses about the concept proposal and preferred uses of the Site.
c) The first phase commenced on 14 December 2022, with meetings occurring in January and February 2023.
· Second Phase: Community survey:
a) The survey investigated and aimed to understand broader views on the proposed development and preferred uses of the Site.
b) The survey was distributed in two ways to provide two discrete data sets.
i) A public data collection, completed on an open, self-selected basis (Open Sample), to allow Council to understand the views of residents and ratepayers most passionate and interested in the site; and
ii) A market research collection, conducted by Thinkfield Research (Thinkfield), an external market research agency engaged by Viv Warren. Focusing on random selection door-to-door interviews (Market Research Sample), to allow Council to understand the perspectives of the local Quinns Rocks and broader City of Wanneroo community with statistical confidence.
c) Open Sample:
i) Intended to provide and reflect the views of those that are most interested and/or impacted by the project.
ii) City of Wanneroo residents and ratepayers over the age of 14 were invited to complete a Thinkfield survey accessible through the City’s website.
iii) Hard copies of the survey were available from City of Wanneroo libraries and the Civic Centre and other key locations, including the QMSLSC/QMCC building. Copies could also be requested through City staff.
iv) The final data set for the Open Sample comprised 1,006 respondents:
· 742 respondents identified as residents of the Central West Ward; and
· 264 respondents identified as residents of the other six Wards that comprise the City of Wanneroo.
d) Market Research Sample:
i) The Market Research Sample enables Council to understand the likely views of the population they represent, to an acceptable level of statistical confidence.
ii) The process targeted 400 responses, comprising:
· 200 respondents from the Central West Ward, to provide a high degree of confidence that the results represent the views of the residents and ratepayers closest to the site; and
· 200 responses from residents and ratepayers across the rest of the City of Wanneroo, to provide statistical confidence that the results represent the views of the broader City of Wanneroo community outside the immediate suburbs of Quinns and Mindarie.
iii) The final data set for the Market Research Sample comprised 426 respondents:
· 196 respondents identified as residents of the Central West Ward; and
· 230 respondents identified as residents of the other six Wards that comprise the City of Wanneroo.
iv) The sample of 426 provides a theoretical survey error rate of approximately 4.7% at a 95% confidence level. The sample of 196 for the Central West Ward provides a survey error of proximately 7%, and the 230 for the remainder of the City of Wanneroo an approximate survey error rate of 6.5%.
v) An equivalent statistical level of confidence is not experienced with the Open Sample.
To support the engagement process, the City engaged (via Viv Warren):
· Thinkfield to host and collect responses associated with the community engagement survey; and
· Keith Paterson of Patterson Market Research, as a specialist to direct the market research, supervise field staff collecting data and analyse the results.
Outcomes of community engagement
The key findings of the engagement process are prepared in Attachment 7, with a summary version provided in Attachment 8. Administration’s summary below should be read together with those Attachments.
The community and stakeholder responses during the engagement process were varied, with some participants supporting, some opposing, and a smaller proportion neutral or indifferent.
The levels of support for the Proposal varied depending on the type of engagement activity attended, with focus group attendees mostly supportive, interviewees divided, and drop-in session attendees mostly opposed.
The survey data revealed support (70%) for the Proposal in the Market Research sample collected by Thinkfield. Most respondents, regardless of their residential proximity to the site, were in favour of the Proposal.
In contrast, the Open Sample survey revealed a higher level of opposition (48%) to the proposal.
|
Survey Method |
Level of Support |
Level of Opposition
|
|
Market Research Sample
|
70% |
10% |
|
Open Sample
|
47% |
48% |
Data trends included:
· Supporters of the Proposal identified:
a) the Proposal as a modern and unique concept, eco-friendly design;
b) the need for accommodation;
c) increased tourism benefits to the region; and
d) the footprint for the Proposal reflected community preferences to contain the development within the existing caravan park site and not encroach on the surrounding bushland;
· Opponents had concerns regarding:
a) future public access to the Site;
b) the potential high cost of staying in the proposed accommodation, meaning that it would be less accessible than the former caravan park;
c) doubtful commercial viability, due to high winds at peak periods and lower occupancy in cooler times during the year;
d) noise, traffic and parking disruptions for immediate residents and users of Lot 211;
e) the potential future impact on the surrounding bushland (in the event there was a subsequent request to expand the development); and
f) impact on the potential future expansion of QMSLSC; and
· Opportunities to enhance the Proposal which were identified during the community engagement included:
a) increasing access to, and availability of facilities and amenities;
b) increasing accommodation options and keeping prices affordable;
c) adding playgrounds, paths, and sun protection; and
d) reviewing a proposed reflection pool to increase its utility and safety.
Attachments 7 and 8 were released to the public via the City’s Your Say page on Tuesday, 30 May 2023.
To support the information release, updates were also provided to key stakeholders and to community members registered on the Your Say page. These included electronic direct mail (EDM), supported by an updated version of the QA document which is available on Your Say. A number of key stakeholders were also contacted via phone calls prior to the release.
The information release occurred in advance of the current Special Council Meeting, to provide an opportunity for the community to see the findings before this report is bought to Council for consideration.
It is important to note the community’s valuable contributions made during this engagement process:
· Valuable feedback has been provided in regard to many aspects of the Site, Proposal, surrounding land uses and the area as a whole.
· In addition to attending meetings and participating in the survey, community members and stakeholder groups, particularly those in the immediate vicinity of the Site, met separately, prepared their own information sheets, circulated information at public venues and events, and participated in separate online discussions.
· Community members completed a petition in relation to the Site, which was received at the 12 June 2023 Ordinary Council Meeting. Further discussion of this item is provided below.
· Within the immediate local area, there is a notable section of the community and stakeholder groups which have a strong interest in the Site and its long-term use. In earlier phases of the project, this interest was more focused on limiting the development footprint and preventing expansion into native bushland, reflected in Petition PT01-09/20 (see CS04-12/20). In the recent phase, the community response has been more focused on securing community use of the Site and providing for the future expansion of the QMSLSC.
The community’s feedback and the time taken to engage is valued and greatly appreciated. Administration recommends that the City continues to look for opportunities to work with the community and incorporate its perspectives in the future use of the Site and the surrounding area. Recommendations for this aspect are provided in the Comment section of this report.
Discussions with the Proponent
Administration continued discussions with the Proponent since July 2022, covering:
· collaboration during the community engagement process, with the Proponent assisting Administration with responses to community enquiries and Administration providing updates on engagement feedback and themes (to the extent relevant to the Proposal);
· the Proponent’s corporate structure, which Administration requires for due diligence; and
· preliminary discussions on potential lease terms, noting that Administration has been unable to proceed with formal negotiations until Council decides to proceed with a lease.
Update – The text in the paragraph below was previously included in the report to the Special Council Meeting, but has now been moved to Attachment 1 and updated. In addition to the detail provided in Attachment 1, Administration acknowledges that some of the concerns raised in the Special Council Meeting on 20 June 2023 may have misunderstood the status of the project, in that Council had previously only identified the Proponent as the preferred candidate following the EOI process and had not endorsed formal negotiations. This meant that aspects of the lease have only reached a preliminary stage and there was significant uncertainty in how much the Proponent should invest in its operating structure and detailed planning.
The concept plan for the
Proposal (overlayed with an aerial image of Lot 211) is provided in Attachment
7.
The concept plan may
change, with aspects such as the accommodation locations and format subject to
modification based on information shared with the Proponent during the
engagement process and as part of the Proponent fine tuning its designs.
An example of the proposed accommodation structure is
provided in Attachment 8.
Proponent and the engagement process
Feedback on the Proposal has been provided by the community during the engagement process.
Where relevant, community feedback prompted Administration to request project clarification from the Proponent, which were then shared with the community via the City’s website.
Administration has found that the Proponent is responsive to enquiries from City staff, acknowledging that the Site is constrained and any modifications to the Proposal need to be operationally and financially viable.
Examples of community feedback that identified potential challenges or enhancements which could be considered by the Proponent included:
· Inclusion of sustainable design features: The Proposal was amended to include the use of solar panels and lights where possible to reduce energy consumption. The footings for all tents have also been designed to minimise environmental impact compared to traditional concrete footings.
· High coastal winds: Community members expressed concern that the tent structures would be unable to handle the strong coast winds on Site. The Proponent has confirmed that the tents will be designed and engineered to withstand extremely high winds. Additional aids such as wind breaks, full glass and aluminium frontages and solid eastern and southern walls (retrofitted in canvas) will be used.
· Update - Reflection pool: Safety and maintenance concerns were expressed by the community regarding the reflection pool included within the Proponents original design. Following consideration of the above, the design has been amended to remove the reflection pool.
· Affordability:
a) Initial community feedback indicated that price was very important. The community envisage the offering as somewhere for their family/friends from interstate/overseas to stay at while visiting. They expressed concerns that the price would be like other luxury glamping operations.
b) The Proponent responded by advising that accommodation prices would be lower than the other comparable “glamping” tents, such as on Rottnest Island. It is expected that accommodation options will start at approximately $175 per night per tent. In this way, the pricing will be comparable to ‘chalet’ style accommodation in a modern caravan park or to hotel rooms in the Perth metropolitan area.
c) To maximise accommodation affordability, the Proponent suggested tiered pricing for family, deluxe and outpost tents and also proposed discounts for City of Wanneroo ratepayers and residents. This would be a commercial matter for the Proponent and its operating model.
· Public access: Community access to the site was a common theme in the community feedback. The proposal includes a licensed café, events space and lawn area with a reflection pool overlooking the ocean. It is proposed that the community would have access to the café and lawn area, unless these areas are booked for a private function.
Update – The text in the paragraph below was previously included in the report to the Special Council Meeting, but has been deleted as being superseded.
Administration
notes that, in response to community feedback regarding the potential safety
and maintenance challenges arising from the reflection pool, the Proponent has
recently indicated a willingness to remove the reflection pool in a revision of
the Proposal.
Community access to the lawn area would be encouraged and this area could be activated for regular and one-off community activities such as fitness programs, sunset concerts and community events. The lawn area, café and facilities will be available to the general public during daylight hours and when not booked for a private event.
· QMSLSC:
a) The Proponent is aware that QMSLSC sees the Site as a potential area to accommodate future expansion.
b) To try to understand QMSLSC’s priorities, the Proponent was willing to meet with representatives of QMSLSC, noting that the Proponent met with representatives of Portofino’s (as another key local stakeholder).
c) QMSLSC was not supportive of meeting with the Proponent. This meant that Administration instead met separately with QMSLSC and the Proponent and conveyed information between them.
d) In the event that Council resolved to proceed with a lease with the Proponent and for the Proponent to finalise its design and development plans, Administration would encourage QMSLSC and the Proponent to engage in direct discussions. In general, Administration’s experience is that direct meetings between stakeholders are more likely to find an understanding and opportunities for collaboration.
· Food offering:
a) The Proponent has clarified that it intends to operate its café as primarily a breakfast and lunch offering.
b) The Proposal will not offer a dinner service and therefore will not impact on the main dinner offering at Portofinos and Sea Spice.
c) The Proponent has advised that it is interested in working with the surrounding business rather than competing, and that it would welcome collaboration (such as for neighbouring businesses, including Portofinos and Sea Spice, to have the opportunity to assist with catering services).
· Site footprint:
a) Avoiding or limiting an expansion was a concern expressed by the community during the engagement process.
b) In this regard, the Proponent has supported remaining in the footprint of the former caravan park, and the Proposal can be viewed as responsive to the community aspirations expressed in Petition PT01-09/20) (considered by Council in December 2020, CS04-12/20).
c) For reference, the petition had provided:
‘We are opposed to any expansion to the development footprint of the former Quinns Rocks Caravan Park site at Lot 211 Quinns Road Mindarie which will encroach on Bush Forever site #397’
Update – Revised concept design
Following community feedback during the engagement process and at the recent Special Council Meeting, the Proponent has reviewed the concept design for the Proposal.
The updated concept design is shown as an overlay image with Lot 211 in Attachment 9 and to a higher resolution in Attachment 10. Material changes discussed in further detail in Attachment 1.
An example of the proposed accommodation structures is provided in Attachment 11.
The concept remains a draft and is subject to detailed design, planning approval and approval of the lease.
Update – Establishment of an operating entity
At the Special Council Meeting, concerns were raised regarding the Proponent not having established a company to operate the Proposal. As noted above, some of these concerns may have been based on a view that the project was at a late stage and Council was making a final decision. However, Council had previously only identified the Proponent as the preferred candidate following the EOI process and had not endorsed formal negotiations. This meant there remains significant uncertainty in how much the Proponent should invest in its operating structure and detailed planning. The Proponent had delayed formalising the structure until Council provided a more formal indication of its intents for the project.
Following the Special Council Meeting, the Proponent has established its operating structuring, by incorporating Eco Tourism Pty Ltd (ACN 669 182 709) as trustee for the Quinns Resort Unit Trust.
More detailed information on the operating entity is provided in Attachment 1.
Update – Operating structure
Further detail is provided in Attachment 12. Given that lease negotiations are still pending, the information is commercially sensitive and has been marked confidential.
Lease terms
Discussions with the Proponent included possible lease terms should the Proposal be supported by Council. This has not progressed to formal lease negotiations or final lease terms.
The Proponent has reviewed the following preliminary outline of essential lease terms and has indicated those terms are likely to be acceptable, subject to lease negotiations:
|
Lease Type |
Ground Lease (Agreement for Lease to provide for the approvals and development phase of the project).
|
|
Term |
21 years
Although the Proponent would not be securing the Site permanently, the lease term needs to be sufficiently long term to provide an adequate return on investment.
|
|
Commencement date |
On practical completion of the Proponent’s works constructing the Proposal.
|
|
Options |
No option provided.
Proponent has requested a first right of refusal should the City intend to lease the Site for the same permitted use after the expiry date.
|
|
Rent |
Market Value. Currently assessed as $50,000 per annum plus GST (valuation dated 17 March 2023) (Attachment 13 refers).
No rental incentives are currently proposed, other than deferring rent until the Proponent’s development has commenced trading. Delaying rent payments until the commencement of trading is a relatively common and market appropriate position.
In the event that financial incentives (such as a rent-free period) were agreed during formal lease negotiations, these would be disclosed in the City’s local public notice under section 3.58 of the Act.
|
|
Permitted Use |
Short-term accommodation and café/restaurant/functions/bar.
|
|
Outgoings |
Proponent responsible for all maintenance costs, rates, outgoings and utility costs.
|
|
Security |
Security/guarantee will be largely in place to provide the City with an adequate buffer to allow for make good of the site should the Proposal default.
Amount to be confirmed by negotiation, and will be informed by due diligence on company structure (once it is in place and finalised).
|
|
Documentation
|
Tenure would be structured in an Agreement for Lease (covering the approval and construction phase) and a Ground Lease (covering the operational phase).
Should this matter progress and lease conditions are finalised, the City will prepare formal lease documents based on the City’s template agreement for lease and ground lease documents (similar to those recently used for Scouts WA and the Wildflower Society of WA).
Lease documents would be prepared by the City (at the City’s cost), with each party responsible for its own review and negotiation costs.
The Proponent has been presented with the City’s current template draft lease and agreement for lease. The Proponent has indicated the template documents are largely acceptable, subject to lease negotiations and further document review.
|
|
Other terms
|
Conditions precedent
The agreement for lease will be subject to conditions precedent determined by negotiation. Administration anticipates this would include the transaction being subject to securing all development approvals and other approvals for the construction and operation of the Proposal. The Proponent has not prepared a development application and related plans at the current time, due to uncertainty regarding Council’s intent to proceed.
If Council resolved to proceed with the agreement for lease and ground lease, the Proponent’s preparation of its development application would include other site considerations, such as noise control and the management of any bushfire risk at the Site.
There would be a ‘sunset date’ attached to the conditions, so that the Agreement for Lease would come to an end if the Proponent was unable to secure its approvals and complete the development by an agreed date. Typically, this would be a period of 24 months, but will be confirmed by negotiation.
Responsibility for development
Development tasks and costs would be the Proponent’s responsibility. The Proponent has not requested that the City contribute to the funding of the development or provide works on the Site.
The Proponent’s estimated investment in the development is in the region of $7.5 million - $8 million.
The Proponent will be responsible all site operating and maintenance costs. This will provide saving on the City’s current costs in providing security and waste removal from the Site.
Update – The text in the paragraphs below was previously included in the report to the Special Council Meeting, but has now been moved to Attachment 1 and updated.
Make good
The Proponent would be responsible for removing improvements and leaving the Site in a clean and clear condition at the end of the lease term.
Subject to negotiation, the only exception would be if the City directed that improvements are to remain in place, such as where they offered value for the future use of the Site.
|
Update – Further to the above essential lease terms, a number of other terms (particularly practical, operational requirements to enhance community access) will need to be confirmed at a negotiation stage, should Council decide to proceed with a lease.
Further information and the Proponents position in regard to these items is discussed in detail in Attachment 1.
Parking study
Administration commenced a parking study in late 2022 to inform Council on parking patterns and occupancy rates at the Quinns Mindarie Coastal Node (Parking Study). This area extends from the Site in the south to the artificial headland on the beach between Pearce Street and Hall Road in the north.
The Parking Study (Attachment 14 refers) identifies parking patterns and occupancy rates at the Quinns Mindarie Coastal Node during a peak usage period in summer 2022/23.
The Quinns Mindarie Coastal Node area incorporates the foreshore reserve and the land uses within Lot 211. The land uses are for the QMSLSC, QMCC, Portofinos Restaurant and Sea Spice Indian Restaurant.
Data was collected during the peak summer season of December 2022 and January 2023 using traffic counters installed at the entrance and exit of the Quinns Mindarie Coastal Node car park, as well as at the entry to the overflow car park.
The Parking Study:
· is focused on current usage;
· is limited to all existing land uses associated with Lot 211 and general beach and foreshore visitation in the vicinity; and
· does not speculate on additional parking demand that will be generated by the proposed development of the Site.
Administration’s discussions with the Proponent (and the prior expression of interest process) have been clear that a redevelopment of the Site needs to provide for its own guest parking.
Findings and recommendations are outlined in section 7 of the Parking Study, with additional parking options considered in detail in section 5.
The parking data revealed that from Monday through to Saturday, there is sufficient parking to accommodate all uses at the site, with over 30% capacity available at peak times.
Parking demand at the site only exceeds formal capacity on Sundays.
Administration has listed a project in 2023/24 to undertake a feasibility study for the provision of a new car park at the existing drainage sump, to service the Quinns Mindarie Coastal Node. As identified in the Parking Study, there is no other location within suitable walking distance to the coastal node, where a serviceable amount of parking could be provided to meet average Sunday morning peak parking demand.
Administration will progress with the investigation into potential additional parking in the location of the City’s drainage sump in Lot 211 Quinns Road, Mindarie irrespective of Council’s decision on how to proceed with the use of the Site, noting that parking capacity at the Quinns Mindarie Coastal Node is a wider precinct consideration.
Quinns Mindarie Surf Life Saving Club
QMSLSC provides valuable services for the community, including surf patrols, community safety awareness and the provision of spaces for the community to connect.
At the time of the July 2022 report to Council and subsequently during the community engagement process, QMSLSC members expressed concerns regarding the Site’s proposed redevelopment. Feedback, which in some cases was provided directly to City staff and in other instances was shared on social media, included that the Proposal would impact parking availability and limit the potential future expansion of the QMSLSC facility.
During the community engagement process, QMSLSC began to advocate more strongly for its own expansion to provide storage and membership space. Whereas at the time of the July 2022 report to Council this advocacy had been focused on an open, decked area, QMSLSC subsequently clarified to Administration that it was nearly at capacity and generally required additional space to provide for current members’ needs and accommodate membership growth.
Administration conducted a desktop assessment of the current facility provision at QMSLSC. The assessment included a comparison between current provision and the recommended available spaces as detailed in the adopted Northern Coastal Growth Corridor Community Facilities Plan (CFP).
The review identified that QMSLSC has access to all required facilities specified in the CFP, whether the access be through the leased area or the adjacent QMCC.
The current facility was built in 2005 and there are no funds listed in the City’s Long Term Financial Plan (LTFP) for the provision of any works relating to QMSLSC (including a full needs assessment). It is recognised that there are several competing priorities in the coming years and at this stage any upgrades to the facility would be a lower priority given QMSLSC has a facility, where several other current and future growth area stakeholders do not.
Based on the available information, the size of the facility, in its current form, and the number of rooms provided, the current facility can be considered sufficient for a regional surf life saving club.
The City is intending to progress with a needs assessment and master planning process for the new Alkimos Surf Life Saving Club facility in 2024/25, noting that this schedule is guided by anticipated land availability timeframes. The needs assessment and master planning process may provide guidance for future QMSLSC needs and consider solutions to some of the issues experienced by QMSLSC.
The CFP does not evaluate the potential impact on QMSLSC with a new facility at Alkimos.
Administration notes that the City’s support for QMSLSC currently includes:
· an annual contribution of $40,000, provided to QMSLSC for its surf lifesaving services;
· a lease of the main club area on the ground floor of the facility, subject to the payment of a maintenance fee of $ 2,909.70 plus GST (for the year commencing 7 October 2022), which provides for the City’s completion of scheduled maintenance to key building services (in accordance with the Leasing Policy); and
· related leased areas (under the same lease document) of an upper floor office room and an external ground lease area (for placement of a sea container used by QMSLSC), in both cases on a peppercorn basis.
QMSLSC’s lease of the ground floor in the facility, the upper floor office and the external ground lease area expires on 6 October 2026, however, there is one 5-year option available to the club. If exercised, this would take the lease through to 6 October 2031.
Update – Due to the focus on providing project updates and clarifications and answers to matters raised at the Special Council Meeting, the item has not been at a stage requiring further discussion with QMSLSC.
Site history
Administration has investigated the history of Lot 211 and how it came to be in the City’s freehold ownership. The background to the land ownership has been a point of speculation amongst the community and during prior input from Council Members.
Landgate searches have identified a 1961 transfer to the then Shire of Wanneroo, which referred to the reason for the transfer as being ‘in order to give effect to and for the purpose of the approval of the plan of subdivision (Plan 7318)’ (Attachment 15 refers).
Following consultation with DPLH, Administration obtained access to the State’s Town Planning Board minutes dated 18 July 1961 from the State Records Office in the hope that the subdivision approval expressed a condition requiring the transfer of the land. Unfortunately, the Town Planning Board minutes did not show any mention of the Site and the reason for the transfer.
Administration also obtained a copy of the will and probate grant relating to the former owner (John Wilberforce Clarkson). Mr Clarkson's will and probate did not provide any indication of the purpose for which Lot 211 was transferred to the City (Attachment 16 refers).
Finally, Administration conducted State Records Office searches of Shire of Wanneroo minutes during the early 1960s, at the time when Lot 211 was transferred to the City. These searches did not identify any clear reason or stipulation for the transfer.
Administration considers that the investigation options have been exhausted in searching for documentation to indicate the purpose for which Lot 211 was transferred to the City.
Road reserve
Lot 211 is bisected by an unconstructed, gazetted public road reserve, of a width of 20m and a total area of 0.67ha, passing through cleared and vegetated areas. The road reserve is Crown land, under the City’s care, control and management. There is no intention to construct the road, with the road reserve being historical only.
Council, at its Ordinary Council Meeting of 13 July 2021 (CS03-07/21) resolved to support the closure of the unconstructed road reserve which bisected Lot 211, subject to public consultation on the road closure.
The proposed closure of the road reserve was advertised in accordance with the requirements of the Act and the Land Administration Regulations 1998 (WA) for a combined period of 35 days, closing 8 October 2021.
82 objections were received from the community. It is noted that a large portion of the submissions had been prompted by assertations on social media that the advertising of the closure related to an approved development proposal on the Site. This was not the case, as Council had not even identified a preferred EOI submitter at that time. Responses to all 82 objections were provided where applicable by Administration.
The matter has been under review while the community consultation process was being finalised. Administration feel that enough information has been gathered as part of the engagement process for Council to further consider this matter.
The community has expressed a desire to retain the bushland areas located within the Site, and there is an opportunity for Council to consider the closure of the road reserve to help accommodate further protection of the bush values present at the site.
Administration recommends proceeding with the road closure and to renew discussions with DLPH regarding this process. It is anticipated that a portion of the road reserve (the majority) will be included in a Crown land parcel dedicated as conservation, with a smaller portion potentially forming part of a freehold land parcel comprising the balance of Lot 211.
Public Open Space
Public open space (POS) is land set aside for the purpose of public enjoyment, active and passive recreation, and protection of environmental assets.
There are two types of Public Open Space Reserves:
· Regional Open Space: These are regionally significant areas of open space which accommodate both active and passive recreation, including major playing fields and conservation features including Foreshore Reserves.
· Local Open Space: These are local areas of open space which accommodate both active and passive recreation and include district parks, neighbourhood parks, local parks, special purpose parks, playing fields, natural vegetation conservation and community purpose sites.
Development Control Policy 5.3 (‘Use of land reserved for parks and recreation and regional open space’) establishes the WAPC’s position for the use of land zoned for parks and recreation and regional open space under the MRS:
· Passive recreation;
· Active sporting pursuits;
· Cultural or community activities;
· Activities promoting community education of the environment; and/or
· Uses that are compatible with and or support the amenity of the reservation (i.e. café, restaurant) where specific facilities for such purposes have been approved by the WAPC.
As stated above in the current report, Lot 211 (including the Site) is zoned as a ‘Regional Reserve – Parks & Recreation’ (Regional Open Space) in the MRS. This area includes other leased commercial businesses such as Portofinos, Sea Spice and the QMSLSC which have been considered as consistent with the purposes of the reserve by the City and the WAPC.
Similar to the established commercial operations on Lot 211, Administration also considers that the Proposal is ancillary to and compatible with the purpose of the reserve and is likely to enhance the public access to and enjoyment of the reserve.
The City received comments from residents during the consultation period which raised concerns with the loss of land set aside for POS in the locality as a result of the development progressing. As the Proposal is considered to be consistent with the purposes of the reserve, it is advised that the locality will not be losing a reserve as a result of the Proposal.
Notwithstanding, Administration undertook a desktop review of the provision of POS in the locality to understand if the use of the subject site would result in an unacceptable reduction in areas set aside for recreational opportunities for residents.
· As per the requirements outlined in State Planning Policy - Liveable Neighbourhoods, new suburban developments must allocate approximately 8 - 10% of the area as Local Open Space. This calculation does not include Regional Open Space within the 8 - 10% allocation.
· The desktop review of the locality demonstrates that Quinns Rock comprises approximately 9% Local Open Space and 9.4% Regional Open Space.
· Mindarie comprises approximately 7% Local Open Space and 42% Regional Open Space.
Based on the above information, Administration considers that the Proposal on the Site will not lead to a shortage of recreational opportunities for the residents as the development is consistent with the purpose of the reserve. In addition, there is sufficient Local and Regional POS available for passive and recreational activities and access to natural assets in the locality.
Community petition
At the Ordinary Council Meeting on 12 June 2023, Council received a petition which reads as follows:
“We the undersigned, do formally request council’s consideration regarding the former Quinns Rocks Caravan Park redevelopment to cease any further discussions with Heritage WA Investments and fully investigate the feasibility and costs to develop the former Quinns Rocks Caravan Park site (central-west portion of Lot 211 Quinns Road, Mindarie) for active community use. Including parkland, outdoor activity spaces, barbeques, sheltered areas, playground, food and beverage / light retail options, increased parking facilities, suitable beach access, additional public shower and toilet facilities. This will allow the last remaining foreshore reserve in the Quinns Rocks and Mindarie area to be enjoyed by all residents, rate payers and visitors to the area.”
Update – It is intended that the petition will be considered at the same Special Council Meeting as the current item. The text in the paragraphs below was previously included in the report to the Special Council Meeting on 20 June 2023, but has now been removed.
The petition will be responded to at a future Ordinary
Council Meeting in accordance with the City’s usual processes.
As a preliminary comment on the petition, Administration
notes that the substance of the petition (including matters such as the
feasibility of an alternative development scenario and the availability of POS)
have been addressed in the current report, and the petition should not delay
Council in making a decision on the current item.
Consultation
Community engagement
Information on the community engagement process which occurred between December 2022 and March 2023 is provided in the Detail section of this report, with further detail provided in Attachments 7 and 8.
The extent of engagement was broader than would typically be undertaken by the City, such as for other recent projects (including for the Alkimos Aquatic & Recreation Centre during 2022). This was a reflection of Council’s concern in July 2022 that further engagement occurs to consider the community’s perspectives on the Site, including for the Proposal and potential alternative uses.
The engagement report and summary document were released in late May 2023, to provide an opportunity for the community to consider the findings in advance of a Council meeting.
Due to the sustained community interest in the Site and the high level of participation in the engagement process, the current report is being provided to a Special Council Meeting. This is not usual practice for a project of this type (particularly in the context of a potential lease of City owned or managed land), but is considered appropriate for the current stage of the project.
Prior (historical) community and stakeholder consultation
Several prior community and stakeholder consultation and engagement processes have occurred in regard to the Site prior to the current engagement process.
In the period following the closure and demolition of the caravan park, Administration investigated the potential for redevelopment of the Site in accordance with Council’s resolution in November 2012. Enquiries included a review of the condition of the site and consultation with DPLH.
The Working Group was established in 2015 to support and inform the investigations arising from Council’s resolution in November 2012.
The City’s Action Plan was adopted in 2016 reinforced the potential for redevelopment. The Action Plan identified the need for market research for potential tourism park opportunities at the Site.
To support the evaluation of the opportunities for the site, the City engaged a consultant (Pracsys) in 2017 to prepare a three stage Business Case to assess the feasibility of redeveloping the site.
The Business Case was informed by community and industry engagement, progressed between late 2018 and early 2020. This included:
· Community workshops in late 2018;
· Industry consultation during mid-2019; and
· A survey seeking broad community and business input on values and preferences for tourist parks, led by the themes arising from the workshops.
Attendance at the workshops was predominantly by community members living in close proximity to Lot 211. Responses noted the environmental value of the site and opposed potential expansion.
The workshops were followed by the community survey in late 2019, to provide a broader opportunity for participation, by local residents and business, the wider City of Wanneroo community and broader Perth. The survey was conducted between late November 2019 and mid-February 2020.
The outcomes of the survey were reported to Council in September 2020 (see Attachments 4 and 5 to CS03-09/20).
The Quinns Rocks Caravan Park Re-Development Community Advisory Group met during early/mid-2021 to inform the preparation of the EOI documentation.
Parking study
The Parking Study was conducted to identify parking patterns and occupancy rates at Lot 211 between December 2022 and January 2023 during peak summer usage.
Findings and recommendations associated with this study are provided in the Detail section of this report. The full study is provided in Attachment 14.
Key stakeholders
During the first phase of the engagement process, Administration and Viv Warren engaged with key stakeholders including, surrounding business, residents, QMSLSC and tourism industry experts to gain their feedback on the Proposal.
A high-level summary of these discussions is provided below (with more detailed information provided in Attachment 7):
· Update – Tourism WA: Tourism WA submitted a letter of support to Administration noting its backing for the Proposal, Proponent and the glamping industry as a whole. The letter is provided in Attachment 17.
· Destination Perth: Feedback received was positive, indicating that from a tourism perspective, the Proposal would enhance the Perth region's accommodation offerings as part of the Sunset Coast, which currently lacks high-quality, specialized lodging options for the High Value Traveller. Currently, there is no comparable accommodation option in the mainland Perth region.
· Caravan Industry Association (WA): Feedback provided on the Proposal was positive, outlining the potential for an iconic tourism venue that would be successful.
· Discussions with nearby hospitality businesses: Feedback on the Proposal initially flagged concerns around competition. However, upon further consideration, Administration noted a level of support for an increase in possible tourists to the area.
· QMSLSC: Direct feedback from staff associated with the QMSLSC included concerns regarding parking, the potential future expansion of the QMSLC and the Proposal not being compatible with existing land uses.
QMSLSC members and other supporters of QMSLSC have been highly involved in the community engagement process, including in the Open Sample survey.
Update – Special Council Meeting
The Special Council Meeting on 20 June 2023 attracted a high level of local community interest. This was reflected in the public statements which were made and questions which were raised relating to the subject of the report. The Minutes of the Special Council Meeting record 71 members of the public as attending, with 49 items minuted as relating to public statements and questions, which can be further categorised as:
· Twenty (20) statements; and
· Eighty-three (83) questions.
For the public questions, seven (7) were formally taken on notice and responded to after the Special Council Meeting. A further three (3) questions were the subject of further responses by Administration provided after the Special Council Meeting (in addition to the response provided at the meeting).
This participation in the Special Council Meeting took approximately 2 hours and 49 minutes, reflecting the local community interest in the Site and its future. This community interest is consistent with the interest in the recent engagement process and the community petition (considered separately in the current report).
Comment
Recommended actions
The engagement process has shown a diversity of opinions with some being strongly felt and long standing. In deciding how to proceed, Council faces a challenging decision, which will need to consider the interests of the community and stakeholders and ensure that the final decision aligns with the overall goals and values of the community.
The range of opinions provided during the engagement process means that Council needs to consider and balance those views in making its decision on the current stage of the project (noting also that further stages are required and this is not a ‘final’ decision).
Weighing against the challenging decision faced by Council, and having regard to the engagement process overall, including the market research sample survey collected by Thinkfield and the open sample survey, Administration considers that:
· many of the concerns raised in the engagement process can be mitigated or addressed in the delivery of the proposed concept, such as through provisions in the lease and in operating arrangements by the Proponent; and
· there is a level of support for the Proposal and potential benefits for the City and the community.
Further, in progressing to a recommendation in this report, Administration notes that the decision is not necessarily ‘binary’, where proceeding with the concept proposal means overlooking the views of those opposed within the local community. Rather, the Proposal offers a number of benefits, and community feedback and concerns can largely be mitigated or addressed in the implementation of the Proposal.
Community access, aspirations and amenity can occur within a leased site (as is proposed for the concept). This is not unusual, with commercial lessees often hosting community events or providing parts of their premises (such as open areas or toilets) for public access within trading hours. Engagement with the local community is often fundamental to the viability of a lessee’s business. The Proponent has shown every indication that it will embrace the local area.
The Proposal is also time-limited (as a lease) and so would not permanently exclude Lot 211 being available for other uses, such as the future expansion of the QMSLSC once the proposed lease term is complete.
Accordingly, Administration recommends the following:
· proceeding with lease negotiations with the Proponent and requesting the Proponent to prepare a development application for the Proposal. The City would be proactive in its lease negotiations to enhance community amenity and access to the leased site;
Update – Due to the Proponent’s progress in establishing an operating entity, the entity information has been included in the recommended resolution below. This has not been shown as an amendment, as the resolution needs to be read in its entirety without editing notes.
· providing a further report to Council once the lease negotiations have reached an ‘in principle’ agreement stage, after the advertising of the local public notice required under section 3.58 of the Act has been completed; and
· in parallel with the above actions, the City will also:
a) further to item 2b) of resolution CS03-09/20 and item 9 of resolution CS03-07/22, prepare a plan of subdivision to excise bushland areas from Lot 211 (with the excised area to be subject to land survey) and vest that land in the State as Crown land under a management order to the City for the purpose of ‘Conservation’;
b) proceed with a parking feasibility study in relation to constructing additional parking in the location of the City’s drainage sump in Lot 211 Quinns Road, Mindarie;
c) continue to work with QMSLSC regarding the Club’s current and future needs; and
The recommended action above to progress further with the Proposal would maintain the historical use of the Site (at least since the 1960s) for accommodation purposes. The Site had previously been a traditional caravan park, and this may have been seen as a more likely development scenario when the former caravan park was decommissioned. However, the EOI process (which had been weighted against expansion into the bushland, in recognition of community concerns) highlighted that a traditional caravan park was not a feasible option. Instead, a glamping development provides a more viable and contemporary option to provide accommodation, with associated tourism and economic benefits.
In requesting the Proponent to proceed with a development application, Administration acknowledges that there are costs for the Proponent associated with the application (including consultancy reports which would be needed to support the submission to the WAPC). However, a development approval would provide greater certainty regarding the final design and content for the development of the Site.
In the case of the proposed subdivision noted in sub-paragraph a) above, the excision would be on the basis that the balance of the land not vested in the Crown (i.e. including the Site and leased areas) would be retained by the City in freehold. Administration would intend that the plan of subdivision is prepared following the status of the Proponent’s lease being finalised, as this would enable consideration of the final development footprint and the potential status of the road reserve.
The excision of the land and creation of a ‘Conservation’ reserve would be in addition to practical measures already undertaken by the City, including fencing installation and maintenance, interpretative signage and weed management.
In the case of the Place Statement noted in sub-paragraph d) above, the local community values the importance of the foreshore area and considers it a priority for proper planning and management within the broader Quinns Rocks/Mindarie area. The preparation of a Place Statement for Quinns Rocks/Mindarie would capture and document this community sentiment, alongside information obtained from previous community engagement activities in the area.
The Place Statement would outline the social, environmental, economic and built form characteristics of the area with the aim of identifying the key elements that make Quinns/Mindarie special and using this to protect and advocate for the community’s vision for this important place.
The preparation of a Place Statement is a precursor to further place management work that would identify how to best address the priorities identified by the community. This may be a combination of targeted service delivery, planning controls, place activation initiatives or coordinated capital works projects. Accordingly, the Place Statement should not be viewed as a stand-alone action, but rather an initial step in a wider process to recognise the uniqueness of the Quinns/Mindarie area.
Alternative scenario
Conversely, if Council decides to not proceed with the Proposal, there are different community opinions and preferences for the Site. Some of the concerns raised by the community in relation to the Proposal would also apply to an alternative development scenario.
Further community engagement, and likely master planning, would be necessary. Even a concept such as a ‘community space’ (which had been popular during the community engagement process) would attract debate on issues such as:
· the level of clearing or revegetation;
· infrastructure upgrades, such as lighting and CCTV;
· design and security measures to address anti-social behaviour;
· the location of car parking;
· commercialisation (such the addition of a kiosk, café or food truck space) and the potential impact on nearby businesses, such as if a kiosk operation was more likely to directly compete with Portofinos, Sea Spice and other local cafés than envisaged by the Proposal; and
· how any development would be funded, including the impact on City rates (whether special area rates are required) and whether there would be an impact on other projects (noting there is no funding in the LTFP for the development of a park or community space at the Site).
These considerations may be contentious, which would impact the timeline for any development.
Statutory Compliance
Should Council decide to proceed with the Proposal, the development and ground lease arrangement would be a private treaty negotiation under section 3.58 of the Act.
A local public notice of the proposed disposition will be required to comply with the requirements of section 3.58 of the Act. This would occur once Council has approved a ground lease, in the event that the document is negotiated and agreed ‘in principle’ by the parties.
The public notice would need to disclose the rent for the ground lease (including any rental incentives) and the comparable market rental value.
The notice would be advertised as required under the Act, which would include newspaper notices and on the City’s website. The advertising period is 14 days.
Any future approved development application by the Proponent will require WAPC approval.
Strategic Implications
The proposal aligns with the following objective within the Strategic Community Plan 2021 – 2031:
2 ~ A City that celebrates rich cultural histories, where people can visit and enjoy unique experiences
2.3 - Tourism opportunities and visitor experiences
Risk Appetite Statement
In pursuit of strategic objective goal 2, we will accept a Medium level of risk. The City accepts this is required to protect priority cultural places, create ‘unique’ experiences and embrace the cultural diversity of our heritage in a way that is inclusive but challenges convention and historical thinking.
Risk Management Considerations
|
Risk Title |
Risk Rating |
|
ST – G09 Long Term Financial Plan |
Low |
|
Accountability |
Action Planning Option |
|
Director Corporate Strategy and Performance |
Manage |
|
Risk Title |
Risk Rating |
|
ST – S12 Economic Growth |
Medium |
|
Accountability |
Action Planning Option |
|
Chief Executive Officer |
Manage |
|
Risk Title |
Risk Rating |
|
ST – S23 Stakeholder Relationship |
Medium |
|
Accountability |
Action Planning Option |
|
Director Corporate Strategy and Performance |
Manage |
|
Risk Title |
Risk Rating |
|
CO-O03 Strategic Land |
Medium |
|
Accountability |
Action Planning Option |
|
Director Corporate Strategy and Performance |
Manage |
The above risks relating to the issue contained within this report have been identified and considered within the City’s Strategic and Corporate risk registers. Action plans have been developed to manage this risk to support existing management systems.
Policy Implications
Any future proposed agreement for lease and ground lease would be negotiated in accordance with the City’s Leasing Policy.
As the Site would be leased as a ground lease over freehold land, rent will be payable by the future lessee.
All development and maintenance would be the responsibility of the Proponent (as lessee).
Financial Implications
Proposal
All future approvals, design, construction, engineering, utility connection, relevant reporting and maintenance for the Site would be the responsibility of the lessee, subject to the lease terms being agreed by the parties and approved by Council.
Rent and other commercial terms have not been fully negotiated, but would be confirmed to Council once lease negotiations are finalised. Rent would also be advertised in the local public notice required by section 3.58 of the Act.
The City anticipates receiving an income from the future development, but this position will not be finalised unless the City progresses in negotiations with a preferred candidate. Accordingly, the financial implications of a proposed lease to the Proponent, including:
· rental income;
· potential rates income; and
· the savings in reduced maintenance and security costs,
would be described in the event Council resolves to proceed with lease negotiations and a final lease proposal is submitted to Council for approval.
Project costs
Update – Recent consultancy costs (since 2017) had been provided in the report for the Special Council Meeting on 20 June 2023. Two public questions at the Special Council Meeting on 20 June 2023 asked the following question: ‘Can the City of Wanneroo please advise how much money has been spent as at 16/6/2023 on investigations in relation to Lot 211 over the past 10 years?’ Following review, Administration confirms that the total historical project costs (including City internal staff, materials and plant costs) since 2014 (when the former caravan park was decommissioned and closed) are approximately $967,000.00 (exclusive of GST).
The text in the paragraphs below was previously included in the report to the Special Council Meeting on 20 June 2023, but has now been removed.
· Current
Community Engagement (Viv Warren): The initial contract amount for Viv Warren
Consulting was $35,400 plus GST.
Over the course of the
engagement, additional works were required by Viv Warren Consulting and
Thinkfield to conduct extra community drop-in sessions and provide additional
expert analysis and report preparation following completion of the survey. The
current contracted amount has therefore been increased to $51,085 plus GST.
The costs are within the scope
of the current project budget.
· Consultancy
costs during the recent stages of the project (since the Pracsys business
process commenced in 2017) include:
a) Business
Case and EOI preparation (Pracsys) - $154,165;
b) Financial
due diligence checks and reviews (William Buck Consulting) - $2,500;
c) Survey
for utility service locations (Terravac) - $8,084; and
d) Ancillary
community engagement items (post cards and banners) - $925.
Opportunity cost if the Proposal does not proceed (land value)
The City’s Strategic Land Policy and the Leasing Policy confirm that opportunity cost should be considered when leasing/dealing with land.
In particular, the Leasing Policy specifies ‘where revenue is not maximised on Freehold Land the opportunity cost of the Lease will need to be acknowledged in the applicable report to Council’.
To provide more information on the value of alternative uses of the Site, Administration engaged Australian Property Consultants to relevant property values (Attachment 18 refers). This information is commercially sensitive and has been marked confidential.
Opportunity cost if the Proposal does not proceed (development costs)
As part of the recent community survey, participants were asked what their ‘preferred use’ of the site would be. One of the more common responses to this question was a community park.
Administration’s preliminary internal assessment of costs associated with the construction of a community park, is in the region of $5 million - $10 million. This range includes a threshold for environmental offset implications, heritage issues and a large contingency.
Potential development costs are currently unbudgeted nor planned. There is no provision in the LTFP.
If Council decides to not proceed with the Proposal, and instead decided to provide a community park on the Site, Council will need to consider:
· the funding source;
· the impact on City rates (whether special area rates are required for example); and
· the impact on other City projects.
Maintenance and operating costs are not included in the above estimate. Even if external funding was secured for an alternative development (and the potential for this would be speculative only), funding would not typically extend to ongoing operational costs for the site, which would need to be borne by ratepayers.
Voting Requirements
Simple Majority
|
Moved Cr Parker, Seconded Cr Herridge
That Council:
1. ACKNOWLEDGES, and confirms the City’s appreciation for, the significant community response to the recent engagement process in relation to Lot 211 Quinns Road, Mindarie, which included stakeholder and local resident meetings and a survey;
2. REQUESTS Administration:
a) develops a sense of place statement (as described in the Administration report) for the Quinns Rocks and Mindarie local area;
b) prepares a plan of subdivision, to excise bushland areas from Lot 211 Quinns Road, Mindarie (with the excised area to be subject to land survey, to consider the status of the adjacent unconstructed road reserve and to exclude the existing drainage sump referred to in Item 2d)) and vest that land in the State as Crown land under a management order to the City for the purpose of ‘Conservation’, with the balance of the land not vested in the Crown to be retained by the City in freehold;
c) continues to work with the Quinns-Mindarie Surf Life Saving Club (Inc.) in relation to supporting the Club’s current and future needs; and
d) investigates the feasibility of constructing additional parking in the location of the City’s drainage sump in Lot 211 Quinns Road, Mindarie;
3. APPROVES, in principle, proceeding with private treaty negotiations (for an agreement for lease and a ground lease, as a disposal under section 3.58 of the Local Government Act 1995 (WA)) with Eco Tourism Pty Ltd (ACN 669 182 709) as trustee for the Quinns Resort Unit Trust for the development of an ecotourism, café and event space proposal on the footprint of the vacant former Quinns Rocks Caravan Park;
4. AUTHORISES the Chief Executive Officer (or a nominee of the Chief Executive Officer) to negotiate terms (including, for the ground lease, conditions to enhance community amenity and access to the leased site), execute all documentation and comply with all applicable legislation as is required to effect Item 3. above, noting that the execution of an agreement for lease and a ground lease remains subject to Item 5. below;
5. NOTES, subject to the lease negotiations in Item 4 being finalised and the City publishing a local public notice of the proposed disposal by lease in accordance with section 3.58 of the Local Government Act 1995 (WA), a further report will be submitted to Council after the last day for submissions in response to that local public notice to consider:
a) all submissions received in response to the local public notice; and
b) whether to proceed with the agreement for lease and ground lease; and
6. APPROVES the City signing (in its capacity as freehold landowner of Lot 211 Quinns Road, Mindarie) a development application for the proposal described in Item 3, on the basis that if the development application is approved possession of the site and construction of the development must not occur until Council has resolved to proceed with the agreement for lease and ground lease under Item 5 and the agreement for lease and ground lease have been signed by all parties. |
|
Procedural Motion for Extension of Time to Speak |
|
Moved Cr Berry, Seconded Cr Baker
That an extension of time to speak up to a maximum of ten minutes be provided to Council Members.
CARRIED UNANIMOUSLY
For the motion: Mayor Aitken, Cr Baker, Cr Berry, Cr Coetzee, Cr Cvitan,
Cr Herridge, Cr Huntley, Cr Miles, Cr Nguyen, Cr Parker, Cr Rowe, Cr Smith,
Against the motion: Nil |
|
Procedural Motion to Adjourn |
|
Moved Cr Smith, Seconded Cr Berry
That the meeting be adjourned for up to 15 minutes for Councillors to get more clarity on a potential proposed amendment.
carried 9/5
For the motion: Mayor Aitken, Cr Baker, Cr Berry, Cr Coetzee, Cr Huntley,
Against the motion: Cr Cvitan, Cr Herridge, Cr Miles, Cr Rowe, Cr Treby The name(s) of Members who had spoken on the matter prior to the adjournment are : · Cr Parker. |
The meeting adjourned at 9:02pm with all Council Members present.
|
Procedural Motion to Resume |
|
Moved Cr Berry, Seconded Cr Herridge
That the meeting be resumed CARRIED UNANIMOUSLY
For the motion: Mayor Aitken, Cr Baker, Cr Berry, Cr Coetzee, Cr Cvitan,
Cr Herridge, Cr Huntley, Cr Miles, Cr Nguyen, Cr Parker, Cr Rowe, Cr Smith,
Against the motion: Nil |
The meeting resumed at 9:18pm with all Council Members present.
|
Procedural Motion to Extension of Time to Speak |
|
Moved Cr Berry, Seconded Cr Baker
That an extension of time to speak up to a maximum of ten minutes be provided to Council Members.
CARRIED UNANIMOUSLY
For the motion: Mayor Aitken, Cr Baker, Cr Berry, Cr Coetzee, Cr Cvitan,
Cr Herridge, Cr Huntley, Cr Miles, Cr Nguyen, Cr Parker, Cr Rowe, Cr Smith,
Against the motion: Nil |
Cr Paul Miles left the meeting, the time being 09:19 pm
Cr Paul Miles returned to the meeting, the time being 09:20 pm
Attachments:
|
1⇩. |
Attachment 1 - Further Information |
23/239273 |
|
|
2⇩. |
Attachment 2 - Minutes of Special Council Meeting - Tuesday, 20 June 2023 |
23/253485 |
|
|
3⇩. |
Attachment 3 - QRCP Site and Locality |
21/255356 |
|
|
4⇩. |
Attachment 4 - Nearmaps Image - Lot 211 Quinns Road, Mindarie - October 2012 |
22/256766 |
|
|
5⇩. |
Attachment 5 - Business Case - September 2020 |
20/371606[v2] |
|
|
6⇩. |
Attachment 6 - Expression of Interest Document |
22/108788 |
|
|
7⇩. |
Attachment 7 - Community Engagement Key Findings Report |
23/165646[v12] |
|
|
8⇩. |
Attachment 8 - Community Engagement Update |
23/164622[v5] |
|
|
9⇩. |
Attachment 9 - Aerial Showing Overlay of Proposal on Map |
23/241038 |
|
|
10⇩. |
Attachment 10 - Updated Concept Plan |
23/229554 |
|
|
11⇩. |
Attachment 11 - Concept Images (Draft) |
23/151781 |
|
|
12. |
Confidential Attachment 12 - Operating Structure |
Confidential |
|
|
13⇩. |
Attachment 13 - Ground Lease Valuation Report - Summary |
23/199809 |
|
|
14⇩. |
Attachment 14 - Quinns Mindarie Coastal Node - Parking Study 2023-23 - Traffic Services |
23/89701 |
|
|
15⇩. |
Attachment 15 - Land Title Infomation |
23/83466 |
|
|
16⇩. |
Attachment 16 - John Wilberforce Clarkson - Will and Probate |
23/137220[v2] |
|
|
17⇩. |
Attachment 17 - Tourism WA - Letter of Support |
23/254147 |
|
|
18. |
Confidential Attachment 18 - Valuations |
Confidential |
|
|
19⇩. |
Attachment 19 - Company Search - ECO TOURISM PTY LTD |
23/227466 |
|
|
20. |
Attachment 20 - Equifax Search - ECO TOURISM PTY LTD |
Confidential |
|
CITY OF WANNEROO Minutes OF Special Council Meeting 01 August, 2023 0
SCS02-08/23 Response to Petition PT01-06/23 - Request for Consideration regarding former Quinns Rocks Caravan Park Redevelopment
File Ref: 22542V033 – 23/231858
Responsible Officer: Director Corporate Strategy & Performance
Attachments: Nil
Previous Items: SCS01-06/23 - Project Update - Former Quinns Rocks Caravan Park Site - Special Council - 20 Jun 2023 5:30pm
Issue
To consider a petition requesting the City cease any further discussions with Heritage WA Investments in relation to the former Quinns Rocks Caravan Park site (Site) at Lot 211 Quinns Road, Mindarie (Lot 211) and fully investigate the feasibility and costs to develop the site for active community use.
Background
At the Ordinary Council Meeting on 12 June 2023 (PT01-06/23), Council received a petition of 1,504 signatures (of which 1,361 signatories identifying as residing within the City of Wanneroo), which read as follows:
‘We the undersigned, do formally request council’s consideration regarding the former Quinns Rocks Caravan Park redevelopment to cease any further discussions with Heritage WA Investments and fully investigate the feasibility and costs to develop the former Quinns Rocks Caravan Park site (central-west portion of Lot 211 Quinns Road, Mindarie) for active community use. Including parkland, outdoor activity spaces, barbeques, sheltered areas, playground, food and beverage / light retail options, increased parking facilities, suitable beach access, additional public shower and toilet facilities. This will allow the last remaining foreshore reserve in the Quinns Rocks and Mindarie area to be enjoyed by all residents, rate payers and visitors to the area.’
Detail
Petition PT01-06/23 was completed in the context of City investigations regarding the future of the Site, which included:
· Community engagement, further to a resolution of Council on 12 July 2022 (CS03-07/22, at item 7);
· Discussions with the proponent of an ecotourism, café and event space development on the Site, which had been previous identified by Council on 12 July 2022 as the preferred proposal following an expression of interest process (CS03-07/22, at item 3); and
· A parking study to identify parking patterns and occupancy rates at Lot 211.
A detailed report had been provided on the agenda for SCS01-06/23. The current report does not propose to repeat the content of that previous report.
Following a procedural motion at the Special Council Meeting, Council resolved:
‘That Item “SCS01-06/23 Project Update - Former Quinns Rocks Caravan Park Site” be deferred for the Chief Executive Officer to provide responses to public questions taken on notice and to provide further information on the proponent, to a Special Council meeting to be held no later than 26 September 2023.’
The current Special Council Meeting will consider the deferred item prior to the current petition item which is the subject of the current report.
Consultation
No additional consultation has been undertaken in preparing this report. Previous consultation was described in the agenda report for the Special Council Meeting on 20 June 2023 (item SCS01-06/23).
Comment
Council will consider how to proceed with the future of the Site in the prior item on the current Special Council Meeting agenda. The outcome for this prior item will provide the substance of Council’s response to the petition.
Due to the petitioner’s interest in the future of the Site, Administration will advise the petitioner following the outcome of the current Special Council Meeting. The petitioner has already been notified of the Special Council Meeting.
Statutory Compliance
Nil
Strategic Implications
The proposal aligns with the following objective within the Strategic Community Plan 2021 – 2031:
2 ~ A City that celebrates rich cultural histories, where people can visit and enjoy unique experiences
2.3 - Tourism opportunities and visitor experiences
Risk Appetite Statement
In pursuit of strategic objective goal 2, we will accept a Medium level of risk. The City accepts this is required to protect priority cultural places, create ‘unique’ experiences and embrace the cultural diversity of our heritage in a way that is inclusive but challenges convention and historical thinking.
Risk Management Considerations
|
Risk Title |
Risk Rating |
|
ST-G09 Long Term Financial Plan |
Low |
|
Accountability |
Action Planning Option |
|
Director Corporate Strategy & Performance |
Manage |
|
Risk Title |
Risk Rating |
|
ST-S12 Economic Growth |
Medium |
|
Accountability |
Action Planning Option |
|
Chief Executive Officer |
Manage |
|
Risk Title |
Risk Rating |
|
ST-S23 Stakeholder Relationship |
Medium |
|
Accountability |
Action Planning Option |
|
Director Corporate Strategy & Performance |
Manage |
|
Risk Title |
Risk Rating |
|
CO-O03 Strategic Land |
Medium |
|
Accountability |
Action Planning Option |
|
Director Planning & Sustainability Director Corporate Strategy & Performance |
Manage |
The above risks relating to the issue contained within this report have been identified and considered within the City’s Strategic and Corporate risk registers. Action plans have been developed to manage this risk to support existing management systems.
Policy Implications
Nil
Financial Implications
Nil
Voting Requirements
Simple Majority
Attachments: Nil
CITY OF WANNEROO Minutes OF Special Council Meeting 01 August, 2023 0
Item 5 Confidential
Nil
Nil
The next Council Member’s Briefing Session has been
scheduled for 6:00pm on Tuesday
8 August 2023 to be held at Council Chambers, 1st
Floor, Civic Centre, 23 Dundebar Road, Wanneroo.
There being no further business, Mayor Aitken closed the meeting at 10:56pm.
In Attendance
LINDA AITKEN, JP Mayor
Councillors:
CHRIS BAKER North Ward
SONET COETZEE North Ward
BRONWYN SMITH North-East Ward
GLYNIS PARKER North-East Ward
JACQUELINE HUNTLEY Central-East Ward
PAUL MILES Central-East Ward
HELEN BERRY Central-West Ward
FRANK CVITAN, JP Central Ward
JORDAN WRIGHT Central Ward
NATALIE HERRIDGE South-West Ward
VINH NGUYEN South-West Ward
JAMES ROWE South Ward
BRETT TREBY South Ward
