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No, boarding houses are permitted in most R zonings STCA. If you read the LEP for the permitted uses within each zoning there will also be prohibited uses R2 may prohibit townhouses, apartments, airfields, opencut mining etc whereas R3/R4 will allow a greater number of high density uses.

Have a quick read of the Building Code of Australia, the LEP & DCP for your area and the S149 (2) (5). Once you comply with all of the requirements for unrelated parties inhabiting a building, then you're on easy street.