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Shops, cafés and offices in Toowoomba — do you need approval?

Toowoomba Regional Council's planning scheme — the Toowoomba Regional Planning Scheme 2012 (Version 29) — decides whether a shop, café or office needs a development application, and the answer depends on the zone your property is in. Below is what its table of assessment says for each zone; or check your own address.

In a low density residential zone

Accepted if you meet the requirements. A small shop or café reusing an existing business building on a main road needs no development application in the Low Density Residential zone if it meets the zone code; anything else, including an office, needs an impact assessable application.

I don't know my zone — choose my council instead

The zone is on your rates notice, or a Landbrief site report will find it for you.

Zone by zone

Shop / Food and drink outlet / Office. Residential zones first.

ZoneWhat the table saysConditionsWhat you'll need
Low Density Residential Zone Accepted if you meet the requirements Table 5.5:1 shop or food and drink outlet only: reuse of an existing building with no more than 25m² additional gross floor area previously used for a business, on a Regional Arterial, Sub-Arterial or Distributor Road (shop food preparation ≤ 30m²; food and drink outlet with no outdoor dining or drive-through); code if meeting that description but not the requirements; an office is not listed (impact)If not met: a development application with impact assessment (neighbours can make submissions). Building approval; Food licence (for a café)Assessed against: Low Density Residential Zone Code, Centre Activities Code
Low-medium Density Residential Zone Accepted if you meet the requirements Table 5.5:2 reuse of an existing building with no more than 25m² additional gross floor area: shop or food and drink outlet at ground level in the Hospital Support or Urban Consolidation Precinct, or on a Regional Arterial, Sub-Arterial or Distributor Road in the Regional, Urban or Office Residential Precinct; office only in the Office Residential Precinct. Code assessable if not meeting that description in the Hospital Support or Urban Consolidation Precinct (shop/food and drink) or the Office Residential Precinct (office)If not met: a development application with impact assessment (neighbours can make submissions). Building approval; Food licence (for a café)Assessed against: Low-medium Density Residential Zone Code, Centre Activities Code
Rural Residential Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:18 food and drink outlet and office not listed; a shop is code assessable if food preparation area ≤ 30m² and gross floor area ≤ 250m² Building approval; Food licence (for a café)Assessed against: The planning scheme
Township Zone Accepted if you meet the requirements Table 5.5:17 shop or office: reuse of an existing building with no more than 25m² additional gross floor area previously used for a business activity; a food and drink outlet is code assessableIf not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: Township Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Emerging Community Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:15 A shop, café or office is not listed in the Emerging Community zone, so it needs an impact assessable development application under the 'any other use' row. Building approval; Food licence (for a café)Assessed against: The planning scheme
Community Facilities Zone Needs a development application (code assessment) Table 5.5:14 food and drink outlet: code; office: accepted subject to requirements for reuse of an existing building with no more than 25m² additional gross floor area previously used for a business (code otherwise, by precinct); shop not listed (impact)If not met: a development application with impact assessment (neighbours can make submissions). Building approval; Food licence (for a café)Assessed against: Community Facilities Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
District Centre Zone Accepted if you meet the requirements Table 5.5:5 reuse of an existing building with no more than 25m² additional gross floor area (a shop must not be a department or discount department store)If not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: District Centre Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Extractive Industry Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:11 A shop, café or office is not listed in the Extractive Industry zone, so it needs an impact assessable development application under the 'any other use' row. Building approval; Food licence (for a café)Assessed against: The planning scheme
High Impact Industry Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:10 shop and office are not listed; a food and drink outlet is code assessable (impact in the Charlton Wellcamp Heavy Industry and Quarry Precincts) Building approval; Food licence (for a café)Assessed against: The planning scheme
Limited Development (Constrained Land) Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:16 A shop, café or office is not listed in the Limited Development (Constrained Land) zone, so it needs an impact assessable development application under the 'any other use' row. Building approval; Food licence (for a café)Assessed against: The planning scheme
Local Centre Zone Accepted if you meet the requirements Table 5.5:6 reuse of an existing building with no more than 25m² additional gross floor area (a shop must not be a department or discount department store); in the Charlton Wellcamp Commercial Centre Precinct a shop or office is code assessable up to 250m² gross floor area and impact above (Table 5.9:3)If not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: Local Centre Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Low Impact Industry Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:8 shop and office are not listed; a food and drink outlet is accepted subject to requirements for reuse of an existing building with no more than 25m² additional gross floor area, otherwise code (impact in the Wellcamp Low Impact Industry Precinct, Table 5.9:3) Building approval; Food licence (for a café)Assessed against: The planning scheme
Major Centre Zone Accepted if you meet the requirements Table 5.5:4 reuse of an existing building with no more than 25m² additional gross floor area (a shop must not be a department store)If not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: Major Centre Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Medium Impact Industry Zone Needs a development application (code assessment) Table 5.5:9 shop: food preparation area ≤ 30m² and gross floor area ≤ 250m²; food and drink outlet: code; office not listed (impact); shop and food and drink outlet are impact in the Charlton Wellcamp Intermodal, Transport and Warehousing and General Industry Precincts (Table 5.9:3)If not met: a development application with impact assessment (neighbours can make submissions). Building approval; Food licence (for a café)Assessed against: Medium Impact Industry Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Mixed Use Zone Accepted if you meet the requirements Table 5.5:20 reuse of an existing building with no more than 25m² additional gross floor area (a shop must not be a department or discount department store)If not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: Mixed Use Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Open Space Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:13 shop and office not listed; a food and drink outlet is code assessable Building approval; Food licence (for a café)Assessed against: The planning scheme
Principal Centre Zone Accepted if you meet the requirements Table 5.5:3 reuse of an existing building with no more than 25m² additional gross floor areaIf not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: Principal Centre Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Rural Zone Needs a development application (code assessment) Table 5.5:19 shop: selling products from a rural use on or next to the site; food and drink outlet: directly associated with a rural use on the site, catering for no more than 100 people and no drive-through; office not listed (impact)If not met: a development application with impact assessment (neighbours can make submissions). Building approval; Food licence (for a café)Assessed against: Rural Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Specialised Centre Zone Accepted if you meet the requirements Table 5.5:7 food and drink outlet or office: reuse of an existing building with no more than 25m² additional gross floor area; shop: only in the Specialist Retail Centre Precinct (not a department store, discount department store or supermarket). A shop outside the Specialist Retail Centre, Toowoomba Airport and Defence Facilities Precincts is impact assessableIf not met: a development application with code assessment. Building approval; Food licence (for a café)Assessed against: Specialised Centre Zone Code, Centre Activities Code, Environmental Standards Code, Integrated Water Cycle Management Code, Landscaping Code, Transport, Access and Parking Code, Works and Services Code, State Planning Policy (July 2017) Appendix 2 – Stormwater management design objectives, Applicable local plan code (Highfields, Meringandan and Meringandan West; Glenvale; Charlton Wellcamp Enterprise Area)
Sport and Recreation Zone Needs a development application (impact assessment — neighbours can make submissions) Table 5.5:12 shop and office not listed; a food and drink outlet is code assessable if associated with an indoor or outdoor sport and recreation use on the same land Building approval; Food licence (for a café)Assessed against: The planning scheme

Overlays that change the answer

  • Bushfire Hazard Overlay. Accepted development not otherwise listed becomes accepted subject to requirements — it must meet the Bushfire Hazard Overlay Code's acceptable outcomes or becomes code assessable. (Table 5.10:1)

Worth knowing in Toowoomba

Toowoomba Regional Planning Scheme 2012 (Version 29), Part 5. A material change of use is impact assessable unless the table says otherwise or the use isn't listed; reconfiguring a lot is code assessable unless the tables say otherwise; building work and operational work are accepted unless the tables say otherwise (section 5.3.2). Accepted development subject to requirements that doesn't meet the listed acceptable outcomes becomes (limited) code assessable (section 5.3.3). Where land is in more than one zone, local plan or overlay the highest category applies, but a local plan overrides the zone and an overlay overrides both (section 5.3.2). Schedule 6 of the Planning Regulation 2017 overrides the scheme (e.g. a dwelling house, community residence or home-based business can be accepted regardless). Building work: the accepted-subject-to-requirements part of Table 5.7:1 was replaced by Temporary Local Planning Instrument 01/2026 (Table of Assessment for Building Work) from 16 February 2026, which isn't reproduced in the source — the shed, extension, pool and fence answers follow the pre-TLPI 'All other building work → applicable zone code' row and should be checked against the TLPI. Excavating or filling that changes ground level by more than 1m (other than for a pool outside the Landslide Hazard Overlay) is code assessable. A building approval under the Building Act is still needed in all cases. Granny flats follow the Dwelling House row (a dwelling house includes a secondary dwelling); dwelling houses in the Low Density and Low-medium Density Residential zones are accepted on lots of 450m² or more that aren't hatchet lots or in a Schedule 7 plan of development, otherwise accepted subject to the Small Lot Housing Design Code or Medium Density Residential Code. Precincts change answers in many zones: Low Density Residential (Clifford Park Stables, Park Residential — larger minimum lots); Low-medium Density Residential (Hospital Support, Urban Consolidation, Regional/Urban/Office Residential — shop, café and office rules); Specialised Centre (Defence Facilities — houses, dual occupancy and units; Specialist Retail Centre; Toowoomba Airport; Queensland Government Research Facility); Community Facilities (Education, Higher Education, Hospital, Government, Other Community Purposes); Mixed Use (West Creek and City South Bulky Goods/Service Industry — some centre uses excluded); Township (Flood Management Precinct makes a house or dual occupancy code assessable); Rural Residential and Rural (minimum lot size by precinct); Industry zones (Wellcamp, General Industry, Transport and Warehousing, Intermodal, Heavy Industry, Quarry). Local plans (section 5.9): Highfields, Meringandan and Meringandan West (Major Centre Medium Density Residential Precinct — dwelling house and dual occupancy impact; Town Centre Frame — department store/supermarket impact), Glenvale (no category changes) and Charlton Wellcamp Enterprise Area (many centre uses in industry precincts become impact; Local Centre Commercial Centre Precinct — shop/office code to 250m², multiple dwelling impact). Overlays with no category change (benchmark only): Agricultural Land, Environmental Significance, Scenic Amenity (MCU), Regional Infrastructure Corridors and Substations (MCU), Water Resource Catchments. This file was structured by hand from a Markdown conversion of the council's Part 5 PDF, not an official copy.

What else you'll need

  • Building approval
  • Food licence (for a café)

More about Toowoomba

Other projects in Toowoomba

Granny flatDual occupancySubdivideShed or carportExtensionPoolFence or wallHome businessTownhousesClear treesDemolish

The statewide position on this project: Shop, café or office in Queensland.

Read from the Toowoomba Regional Planning Scheme 2012 (Version 29) tables of assessment. General information, not advice. The council's planning scheme and the Planning Act 2016 decide — confirm with the council or a town planner before you build.