PLANNING FOR THE FUTURE OF TOURISM IN QUEENSLAND

Transcription

1 PLANNING FOR THE FUTURE OF TOURISM IN QUEENSLAND A guide for better practice in tourism planning OCTOBER 2013

2 CONTENTS PART ONE: TOURISM AND PLANNING INTRODUCTION 4 6 CORE PRINCIPLES OF TOURISM PLANNING 5 PURPOSE OF THE GUIDE 5 STATE PLANNING POLICY 6 TOURISM INDUSTRY AS A STATE INTEREST 7 DEFINITION OF TOURISM 8 SCOPE OF TOURISM 8 THE TOURISM PRODUCT: PRIMARY TOURIST ATTRACTION AND SECONDARY TOURIST SUPPLY 9 THE IMPORTANCE OF TOURISM PLANNING 10 PART THREE: PLANNING SCHEME PROVISIONS PLANNING SCHEME STRUCTURE 20 STRATEGIC FRAMEWORK 20 LEVEL OF ASSESSMENT 21 ZONING 22 OVERLAYS 23 DEVELOPMENT CODES 23 DEFINITIONS 23 APPENDIX A TOURISM DEVELOPMENTS 24 APPENDIX B TOURISM LAND USE DEFINITIONS 25 REFERENCES 28 SUSTAINABLE DEVELOPMENT 10 ECONOMIC BENEFITS 10 COMMUNITY BENEFITS 11 PART TWO: DEVELOPMENT ASSESSMENT FRAMEWORK TOURISM DEVELOPMENT ASSESSMENT FRAMEWORK 13 WHAT CONSTITUTES A TOURISM DEVELOPMENT?15 WHAT DEVELOPMENT CODES SHOULD BE USED WHEN THE TOURISM DEVELOPMENT IS UNIQUE OR INNOVATIVE? 15 HOW DOES A DEVELOPMENT DEMONSTRATE THAT IT IS MEETING THE TOURISM DEMAND? 15 HOW IS A TOURISM DEVELOPMENT TO BE CONSIDERED AS BEING, OR RELATING TO, A PRIMARY TOURIST ATTRACTION? 17 HOW DO WE KNOW IF A TOURISM DEVELOPMENT REQUIRES THE USE OF THIS PARTICULAR SITE? 18 HOW DO WE ASSESS IF THE TOURISM DEVELOPMENT IS APPROPRIATE TO THE AREA? 18 2

3 PART ONE TOURISM AND PLANNING 3

4 INTRODUCTION Local government planning schemes are significant instruments delivering comprehensive land use plans that aim to achieve a strategic outcome. Often the link between these land use strategies and the direct effect on the economic, social and ecological potential of the tourism industry is underestimated. The Queensland Tourism Industry Council (QTIC) has prepared the Planning for the future of tourism in Queensland guide as an industry-led planning approach that will be crucial in achieving sustainability and prosperity in Queensland s tourism industry. Aspirational goals have been set by the Queensland Government on tourism growth in the short to medium term future, most notably the aim to achieve $30 billion in visitor expenditure by This guide provides expert industry knowledge on interpreting policy objectives into practical solutions at a local level. A key output of this guide is a Tourism Development Assessment Framework that enables local government planners to assess a tourism development on its merits. This framework is essentially a decision-making process that addresses the issue of having an inflexible development criteria and traditional zoning approach in planning schemes that cannot accommodate for tourism developments for the following reasons: 1. Tourism is a complex and diverse industry that requires a flexible approach in order to achieve an overall strategic outcome. Some tourism developments are often highly innovative developments that are driven by demand or by the unique values of an area. 2. Some tourism developments are ancillary and/or complement primary uses, such as short-term accommodation near areas of high environmental value. Often the case is that tourism developments cannot be pinpointed to a specific location making them spatially dispersed. As such, some tourism developments are considered as incompatible to their zone despite being ideally suited. Adopting this tourism development assessment framework allows local government planners to identify and capture tourism opportunities, and act as enablers in developing a prosperous and sustainable tourism industry for Queensland and its people. 4

5 6 CORE PRINCIPLES OF TOURISM PLANNING The six core principles are aimed at providing local governments with a clear understanding of what is required to achieve better practice in tourism planning. 1. Establish the overall tourism development objectives and policies that recognise the importance of tourism to a sustainable economy. These are articulated through a strong strategic framework that clearly outlines what tourism aims to achieve and how to deliver these desired outcomes. 2. Tourism is to be recognised as a product that requires several sectors and land use components to work harmoniously together. Planning for tourism will require a destination approach that allows compatible land uses to co-exist. 3. State and local governments facilitate tourism developments a adopting the flexible approach as demonstrated in the Tourism Development Assessment Framework in assessing developments based on its merits and contribution to the overall tourism objectives. 4. Local governments support the economic growth of the tourism industry through recognising that good economic outcomes are favoured over a stringent compliance with inflexible and unsuitable development criteria. conservation of the environment. Developments involving conservation areas are to adopt ecotourism principles as outlined in the Queensland Government s Ecotourism Plan. PURPOSE OF THE GUIDE The Planning for the future of tourism in Queensland guide has been developed to: Assist in identifying appropriate locations for small to large scale tourism developments and tourism precincts that reflect government policies, the growing market demand and identified tourism opportunities such as those outlined in the Tourism Opportunity Plans prepared by Tourism and Events Queensland; Build a partnership with state and local government planners to effectively work together on facilitating, promoting and delivering sustainable tourism development outcomes; Deliver a Tourism Development Assessment Framework and practical solutions that local government planners can use in the decisionmaking process for developments that are not suited to the planning scheme s development criteria; and Allow for the tourism industry and stakeholders of proposed tourism developments to understand good planning practice and how local governments may assess future tourism developments. 5. Reflect and enhance the special qualities and characteristics of the communities and destination to provide a unique tourism experience that plays on the strengths of the area. 6. Tourism development and activity involving the natural environment should be symbiotic with the values of nature, and promote the 5

6 STATE PLANNING POLICY The Queensland Government s State Planning Policy sets out the state interests and related policies that local governments must take into account in preparing or amending local planning instruments, and that the state may consider in preparing and amending regional plans. QTIC s Planning for the future of tourism in Queensland guide will provide assistance to the implementation of the State Planning Policy in the following areas: FIGURE 1: ADDRESSING THE STATE PLANNING POLICY IN THE QTIC GUIDE QTIC Guide State Planning Policy statement of objectives (1) Express the state s interests in planning and development in a single place in a complete and concise format. - (2) Encourage flexible, innovative and locally appropriate approaches to planning. (3) Be supported by tools guidance material to assist implementation. State Planning Policy Principles (1) Support the efficient approval of appropriate development Ensuring that assessment levels and development requirements are focused to satisfy the strategic framework of the planning instrument, the aspirations of the community and are proportionate to risk. Ensuring any regulation and restriction of development is necessary and, if so, is proportionate to the potential impacts of the development being regulated. Maximising community engagement and consultation activities during plan making stages and appropriately considering and reflecting consultation outcomes in planning instruments. - (2) Facilitate effective delivery of sustainable planning outcomes Facilitating development which supports the achievement of stated objectives, across state, regional and local levels. Ensuring provisions such as levels of assessment and development requirements within codes/overlays are targeted to support the approval of strategically consistent development. Providing development opportunities which support housing, employment, infrastructure and other economic, social or environmental needs of the community. Adopting evidence-based approaches to the development of planning instruments and decisions. (3) Protect and enhance Queensland s natural and built environments and places Ensuring planning and urban design at all scales contributes to environments which support economic and environmental sustainability, liveability and the needs of the community in a cost effective and responsible manner. Ensuring planning instruments support the maintenance of ecological processes and environmentally sensitive areas and enable the sustainable use and management of natural resources. (4) Maximise transparency and accountability of planning instruments and decisions 6

7 Ensuring planning instruments are transparent, easily understood and support defensible and logical development decisions. (5) Enable positive responses to change, challenges and opportunities Maintaining currency in order to reflect contemporary information, challenges and the changing needs of the community. Enabling responsive and flexible performance-based approaches to deal with an unforseen future and rapid changes. Supporting and encouraging innovative design and development which supports the planning instrument s strategic intent. (6) Consider infrastructure needs required to support development Applying a fit for purpose approach to infrastructure planning and provision. - Supporting the application of innovative solutions to infrastructure challenges. - Objectives in managing competing state interests (1) Consider the state interests in their entirety. - (2) Support innovative and locally appropriate solutions. (3) Empower and support local governments to make the best planning decisions for their communities. TOURISM INDUSTRY AS A STATE INTEREST The State Planning Policy identifies the tourism industry as one of the 18 state interests. The following objective for the state interest as per the State Planning Policy is as follows: Grow the tourism industry through: enabling sustainable development of tourism accommodation, attractions, facilities, infrastructure and other ancillary services, and the facilitation of opportunities for tourism activities to complement and co-exist with existing land use and economic activities. Further to the State Planning Policy s tourism industry objective, the tourism industry state interest contains a Making or amending a local planning instrument section which states the following: The local planning instrument is to reflect the SPP for this state interest by: (1) Considering the findings of tourism planning activities that have been undertaken for the local and regional area, and (2) Protecting and enabling development of current and potential tourism assets and values (both natural and built) including areas of high scenic amenity, gateways, access routes and infrastructure, and (3) Considering localities or areas appropriate for tourism development (existing and potential) and include measures which: (a) Support tourism by ensuring it is recognised and supported through the strategic framework, and (b) Facilitate the development of appropriate tourism uses through planning measures (including levels of assessment, zoning, overlays and code provisions) which support the efficient development of tourism orientated uses, including new and innovative tourism products, and 7

8 (c) actively encourage opportunities for tourism to develop as a complementary and compatible land use, and (d) support tourism orientated development that promotes the amenity, economic, environmental and cultural values of an area. The QTIC Planning for the Future of Tourism in Queensland guide has been prepared in order to assist governments by providing the details necessary to achieve the overall objective and support in reflecting the State Planning Policy within local planning instruments. This guide has been prepared under the same objective and implementation strategies and therefore aligns directly to the State Planning Policy. DEFINITION OF TOURISM The definition of tourism adopted by the World Tourism Organization is: Tourism comprises the activities of persons travelling to and staying in places outside their usual environment for not more than one consecutive year for leisure, business and other purposes. When dealing with planning and development however, tourism requires a land use dimension in order to deliver a tourism product. This requires a degree of flexibility when it comes to local government assessment as tourism covers a broad range of land uses. Furthermore, local government must be capable of identifying compatible land uses even in cases where the zoning may not permit certain types of tourism developments, and when it would be appropriate to allow for development to occur in these instances. This is detailed in part two of the guide. The first step is to understand the scope of tourism in terms of types of developments. SCOPE OF TOURISM When considering the scope of tourism in relation to land use, local governments should take the following activities into account: All types of accommodation including hotels, motels, camping grounds and caravan parks, farm stays and bed and breakfasts and holiday homes; Visitor attractions, whether free-of-charge or paid for, such as museums, art galleries and botanical gardens; Natural and built assets including rivers, lakes, beaches, forests, reserves, national parks, heritage buildings, sites and monuments including leisure, recreation and sporting facilities; Systems that provide visitor information, including the operation of visitor information centres, pedestrian way-finding systems and tourist signposting, etc; Water, air and land transport including local buses, taxis, tour coaches, rail, air access and harbours and sea ports; Supporting infrastructure such as horse trails, cycleways and mountain biking trails and walking trails; Retail activities in general such as department stores, small businesses, petrol stations, newsagents and pharmacies; Community and sporting infrastructure such as sporting stadiums, racecourses, entertainment centres, conference centres and community halls. 8

9 THE TOURISM PRODUCT: PRIMARY TOURIST ATTRACTION AND SECONDARY TOURIST SUPPLY In order to understand the tourism product in the context of planning, it is imperative to understand that the tourism product can only be determined in relation to a specific destination, a fact that makes each product unique. For instance, the restored railway carriages (accommodation) situated in the Undara Volcanic National Park south-west of Cairns is a product unique to north Queensland; this particular experience and combination of elements cannot be found elsewhere. The tourist product is essentially broken down into two categories which allows us to identify genuine tourism opportunities. These categories are primary tourist attraction and secondary tourist supply. Components of the Tourist Product Primary Tourist Attraction Secondary Tourist Supply (Facilities) Primary tourist attraction: An attraction that draws visitors to a destination, i.e. what urges a person to make a tourist trip. These attractions are mainly the natural resources of an area. Examples of primary tourist attraction include national parks, mountains, historical and cultural heritage, and other factors unique to an area such as cane fields, vineyards and unique rural or agricultural activity. from the decision to make a tourist trip, and can include short-term accommodation, food and beverage, bathroom amenities, visitor centres, and commercial and retail activity. It should be noted that a development may have two or even more functional roles. For instance, a famous resort may be an attraction in itself (primary tourist attraction) and not just seen as accommodation in support of tourism (secondary tourist supply). These can be determined by analysing visitor patterns and motives. Using the definitions of primary tourist attraction and secondary tourist supply assists in explaining the complex nature of the tourism product. The definition also stresses the experiential nature of the tourist product and highlights some peculiarities relevant to tourism, such as the temporal and spatial dimension of the product. For the purpose of a planning scheme, it is encouraged that the state government as well as local governments endorse the following definition for Tourism Product: Tourism products cater to the needs of a visitor. The tourist product integrates a destination s unique attraction (e.g. natural environment, historic site, etc.) with facilities that support the tourism market such as accommodation, food and beverage, and entertainment facilities. A tourism product can also be a development that provides a unique attraction or experience to the destination. Secondary tourist supply: Man-made components created to facilitate the travel and stay at the destination are classified as secondary tourist supply. This supply of tourist products satisfies the needs arising 9

10 THE IMPORTANCE OF TOURISM PLANNING SUSTAINABLE DEVELOPMENT Planning for tourism is essential to achieve sustainable and successful tourism development and management. Places that have allowed tourism to develop without the benefit of planning often suffer from environmental and social problems. These uncontrolled tourism areas cannot effectively compete with planned tourist destinations elsewhere. The sustainable development approach to planning tourism is highly important as many tourism developments in Queensland depend on attractions and activities related to the natural environment, historic heritage and cultural patterns of the destinations. If these resources are degraded or destroyed, then these areas cannot attract visitors and tourism becomes unsuccessful. A major component of achieving a sustainable tourism industry is the management of natural resources. Recent international visitor research reveals Australia s biggest strength is its world class beauty and natural environments, rated number one by visitor markets. The strong interest of international and domestic visitors in nature-based activities highlights the value of ecotourism to the Queensland economy. Queensland Ecotourism Plan The Queensland Government have released the Queensland Ecotourism Plan ( ) with the vision of: Queensland is Australia s number one ecotourism destination and recognised as a world leader in ecotourism. This vision will be achieved through implementation of the following five strategic priorities: 1. Deliver world class experiences 2. Facilitate product development and innovation 3. Raise the profile of Queensland s ecotourism experiences 4. Foster thriving operators 5. Embrace a partnership approach between industry and government. These strategies seek to provide tourism operators, government and other stakeholders with clear direction on how Queensland will leverage its competitive advantage to become a bold and innovative world leader in ecotourism. ECONOMIC BENEFITS Tourism in Queensland generated $21.7 billion or nearly $59 million per day in visitor expenditure for the year ending September Furthermore, more than 220,000 Queenslanders were directly employed in the tourism industry (9.5% of employment in the state) which is substantially more than the mining sector (55,500 direct jobs) or even agriculture, forestry and fishing (77,900 direct jobs) 1. The economic benefits of a thriving tourism industry include: Creating an abundance of diverse job opportunities for the community; Assisting local governments to support and enhance local services and facilities; Providing the means for local governments to inject money into improving public services such as parks, transport, health centres and libraries; and The ability to return revenue back into the tourism industry to support a broader, more vibrant and active community by attracting arts, sports or cultural events. DestinationQ DestinationQ is a partnership agreement between the Queensland Government and the state's tourism industry (represented by QTIC) which recognises tourism as one of the four pillars of the 1 Source: Tourism Queensland,

11 economy. The main goal of DestinationQ is to get Queensland s tourism industry back on track as Australia s number one tourist destination, in the medium-term achieving the national target of doubling visitor expenditure to $30 billion by In December 2012, the Queensland Government released the first DestinationQ Blueprint The blueprint takes DestinationQ forward to 2015, as the first milestone towards the 2020 target for the industry Industry Target The DestinationQ Blueprint Present opportunities for the resident workforce and help to diversify overspecialised economies; Help maintain and expand underused sports and recreation facilities in urban areas; and Raise awareness of the local area s natural environments and scenic beauty, and further promote conservation efforts 2. All efforts on a local level will subsequently attract more intra- and inter-state visitors as well as those from overseas to Queensland destinations and Australia as a whole $23.2B The DestinationQ Blueprint $27.95B The DestinationQ Blueprint $30B year plan for tourism COMMUNITY BENEFITS The expansion of tourism activity and the increase in revenue underpins the quality of the local environment and facilitate further enjoyment by residents and visitors. In terms of how tourism can change the landscape from a land use perspective, it can: Focus on regeneration of urban and rural areas; Provide a catalyst for growth in an area, raising its profile and stabilising out-migration; 2 Source: Department for Communities and Local Government (London),

12 PART TWO DEVELOPMENT ASSESSMENT FRAMEWORK 12

13 TOURISM DEVELOPMENT ASSESSMENT FRAMEWORK Often good developments are dismissed despite local government planners identifying them as good outcomes for the city. These are due to the inflexible nature of the development assessment process. The Tourism Development Assessment Framework is a tool that allows local government to assess tourism developments on its merits while respecting the principles of good planning. It is largely non-statutory and addresses the issues in development assessment process as opposed to the plan making process. Consideration of this framework by local government will be particularly critical in the case that there are inadequate provisions within the planning scheme to deal with tourism interests. The importance of this framework is further stressed due to the absence of a specific tourism trigger to refer any developments to the State Assessment Referral Agency (SARA) for consideration by government officers in tourism. The framework is designed to essentially be a decision-making process for use by local government planners. The framework is largely performance based and relies on local government planners discretion as well as a number of supportive documents and measures that allow for the assessment process to be streamlined. This framework should be referenced in the planning scheme to allow for a degree of statutory weighting. Explanatory notes relating to the questions proposed in the framework will follow the diagram. 13

14 FIGURE 2: THE TOURISM DEVELOPMENT ASSESSMENT FRAMEWORK Is the tourism development compatible with the zoning? YES NO Does it comply with the development codes? Is the development to be, or related to, a primary tourist attraction? YES NO YES NO APPROVE SUBJECT TO CONDITIONS Is it meeting the tourism demand? Does the development require this particular site? SEEK ALTERNATIVE SITE YES NO YES NO Is it appropriate to the area? RECONSIDER THE PROPOSAL TO MEET LOCAL GOVERNMENT INTENT Is it appropriate to the area? SEEK ALTERNATIVE SITE YES NO YES NO APPROVE SUBJECT TO CONDITIONS APPROVE SUBJECT TO AMENDMENTS TO THE PROPOSAL APPROVE SUBJECT TO CONDITIONS APPROVE SUBJECT TO AMENDMENTS TO THE PROPOSAL 14

15 WHAT CONSTITUTES A TOURISM DEVELOPMENT? Tourism developments cater to the needs of a visitor. Often these developments integrate a primary tourist attraction (a destination s unique attraction e.g. natural environment, historic site, built or topographical landmarks etc.) with facilities that support the tourism market such as accommodation, food and beverage, and entertainment. Broadly speaking, tourism developments generally fall into the categories of accommodation, leisure and tourism facilities, or ancillary services that all relate to servicing the visitor market; see Appendix A. However, a development that does not rely on a primary tourist attraction but has the potential to become one is also considered as a tourism development. State government, local government and industry are able to analyses visitor patterns and motives to determine whether the development could eventually become a primary tourist attraction. Secondary tourist supply is considered as a tourism development when it meets the tourism demand or directly relates to a primary tourist attraction. WHAT DEVELOPMENT CODES SHOULD BE USED WHEN THE TOURISM DEVELOPMENT IS UNIQUE OR INNOVATIVE? Often tourism developments can be classified within existing land use definitions, or at the very least perform a function that is similar to an existing land use. In this case, the closest land use definition should be used but accompanied by an additional explanatory comment, for example: Material change of use - Entertainment facility (tourism development). This clearly states that the development is to be considered and assessed as a tourism development. The codes applicable to an entertainment facility in this instance will be used. Where development codes are too inflexible and are not applicable to the proposal, the Tourism Development Assessment Framework allows for an alternative avenue that allows the assessor to approve or refuse the development based on its merits. HOW DOES A DEVELOPMENT DEMONSTRATE THAT IT IS MEETING THE TOURISM DEMAND? Regional and local tourism plans allow for local government planners to understand the tourism supply and demand for the region. Supply related factors in tourism development include: Development that is authentic and relevant to the overall strengths of the area and is differentiated from other areas; Providing a diverse and sufficient range of accommodation appropriate to the location; Providing a range of activities that relate to the area s primary tourist attraction or add value to a visitor s experience; Having accessible passenger transport that service key locations and tourist spots; Ensuring that the area caters for a range of commercial and retail activities that will provide support. Demand related factors in tourism development include: Implementing land use and development strategies based on current and forecast visitor numbers, length of stay, expenditure and dispersal of the expenditure; Targeting the right target market to attract visitors who will be most responsive to the tourism products of the area; Heavily focusing on the primary tourist attraction in order to provide a unique experience for the area; 15

16 Achieving the right image for an area that markets will acknowledge and be motivated by. Tourism Opportunity Plans Tourism and Events Queensland (TEQ) undertake a strong research component which provides visitor statistics for Queensland and for each destination, international visitor data, economic and forecast data as well as aviation statistics. The statistics for both current and future visitor numbers indicate the level of services and facilities required to cater for the visitor market. Tourism Opportunity Plans prepared by TEQ may also assist in understanding the tourism demand of the region. These plans have been developed to provide a strong direction for the continued sustainable development of tourism in each region. The plans aim to: Identify new and upgraded tourism product that meets future visitor expectations and demands; Identify the need for new investment in infrastructure that supports the ongoing development of tourism; Provide relevant research based information on tourism supply and demand (including forecast modelling); Provide a mechanism for engagement with infrastructure providers and potential investors about the needs of the tourism industry. Local Councils are also encouraged to undertake their own tourism plans in order to assist in accommodating the diverse aspirations of the community. In order to accommodate for future tourism opportunities that may arise during the life of the plan, the following strategies 3 will need consideration: The scale and distribution of tourist activity within the area and what it is likely to be. The strategy needs to be clear about what degree of change it is seeking to oversee, what the nature of that change will be and where it will occur; Likely future trends and change in volume, distribution and type of activity. There needs to be an understanding of what the underlying trends are and how the strategy intends to respond to the opportunities they present; The implications of those trends are for landuse, traffic flows, and the transport system. It should explain the extent to which these trends are (i) dependent upon improvements to the transport network and (ii) where they are likely to increase the need for such improvements; Identification of areas within the region where there are, or are likely to be, any problems associated with growth or decline in tourism. For example, it might be necessary to reconcile demand for tourist accommodation with the need for affordable housing within an area; How increased demand for tourism might be best accommodated. The provision of accommodation and attractions may need to be increased in towns adjoining existing resorts in order to spread the benefits and to diffuse pressures; Environmental impacts of tourism and, where these have adverse effects, how they can be tackled; The need to protect key tourism assets. In addition to features that already have a level of statutory protection (e.g. national parks), there will be other features such as the wider environment, the quality of beaches, choice of 3 Source: Department for Communities and Local Government (London),

17 accommodation, availability of sports and leisure facilities and the presence of night life that are important in sustaining the attractiveness of the area; and Ways in which tourism can contribute positively to other objectives e.g. economic development, regeneration, rural diversification, conservation, and environmental improvements. The outcomes from these key considerations will then enable local government to assess which parts of the planning scheme require tourismfocused policies and provisions. HOW IS A TOURISM DEVELOPMENT TO BE CONSIDERED AS BEING, OR RELATING TO, A PRIMARY TOURIST ATTRACTION? A primary tourist attraction is mainly the natural resources of an area. Examples of primary tourist attraction include national parks, mountains, historical and cultural heritage, and other factors unique to an area such as cane fields, vineyards and unique rural or agricultural activity. Tourism developments that relate to a primary tourist attraction are generally the secondary tourist supply, which are man-made services and facilities that are developed to support tourism. Examples include short-term accommodation, bathroom amenities, visitor centres, and commercial and retail activity. The relationship between the primary tourist attraction and the secondary tourist supply will be considered case-by-case and at the discretion of the local planner. Under most circumstances, where (1) the development caters to the visitor market, (2) shows a relationship to the area s primary tourist attraction, (3) is included within Appendix A Tourism Developments, and (4) the demand exists, then the development would be considered as being or relating to a primary tourist attraction. 17

18 HOW DO WE KNOW IF A TOURISM DEVELOPMENT REQUIRES THE USE OF THIS PARTICULAR SITE? There are a number of reasons as to why a development may require the use of a certain site. These include, but are not limited to: Compatible development that requires colocation, e.g. an ecotourism facility in a national park, a farm stay on a farm, a visitor information centre inside a historic site, a wine-tasting tour on a vineyard. Proximity to the primary tourist attraction; some developments require a close distance to the main tourist attraction, e.g. a resort close to the beach, a marina berth on the coastline, backpacking hostels close to major transport hubs. Taking advantage of unique characteristics of an area, e.g. accommodation located in areas of high scenic amenity, a lookout and visitor facilities on a site with significant vistas, etc. There is no alternative site that would guarantee the same visitor experience or be suitable for the development e.g. the site contains a mix of land uses that affords easy access different activities, there is no other suitable site within the close distance, a highrise hotel requires a site in the city centre, etc. Ownership of the land in this area, e.g. this is the only land that can be reasonably purchased or used by the developer for this development for feasibility reasons. HOW DO WE ASSESS IF THE TOURISM DEVELOPMENT IS APPROPRIATE TO THE AREA? There are 5 key considerations in assessing if the tourism development is appropriate to the area. These are: 1. Function: The development fits the definition of a tourism development and is compatible with its surrounds and adjacent uses. The end use of the development should contribute to the economic, social and/or environmental objectives of the destination. 2. Design: The design of the development is sensitive to the surrounds and reflects the characteristics of its location. The design of the development does not detract from the amenity of the area and is aesthetically pleasing. 3. Location: The development is located in an area that can be serviced by infrastructure, or has the capacity to be self-serviced where it is needed. The development is easily accessible by several modes of transport (which may include walking, cycling, bus and taxi). The tourism development depends on the location to an extent, whether for accessibility, uniqueness, setting or visual amenity and character. Furthermore, if the site is located in a planning scheme overlay, the appropriateness of the location for the development is to be assessed on the risk and safety for the users of the development. 4. Scale: The size of the development must be consistent with nearby developments in the locality or for its function, and to its location. The scale of the development should not compete with the primary land use or primary tourist attraction. 5. Amenity: The development demonstrates a high level of visual amenity and has the appropriate level of infrastructure, while minimises noise, traffic generation, pollution, unsightliness and any offensive odours. Demonstrating a high level of amenity includes the development embracing all the features, benefits and advantages inherent in the environment and surrounds. 18

19 PART THREE PLANNING SCHEME PROVISIONS 19

20 PLANNING SCHEME STRUCTURE The provisions of a local government planning scheme will need to provide scope for the Tourism Development Assessment Framework to have effect. The following section breaks down the planning scheme structure and provides suggestions of inclusions for each part. The Queensland Planning Provisions outlines the typical hierarchy (and order of precedence) of a local government planning scheme as follows: Strategic Framework Level of Assessment Local Plans Zoning Overlays Development Codes Definitions STRATEGIC FRAMEWORK Ensuring that tourism opportunities are enabled in the planning scheme s strategic framework is critical. To emphasise the importance of a strong tourism economy in the area will require local governments to establish tourism as a theme in the strategic framework. As the strategic framework prevails over all other planning scheme parts (despite increased prescriptiveness in the latter parts of the planning scheme), policies and strategic outcomes of the tourism theme that allow for a flexible and facilitative tourism development framework will be achieved through: Recognising that tourism is a significant contributor to creating and sustaining jobs, generating export revenue and strengthening local and regional economies; Identifying the main tourism assets in the region and seek the protection, enhancement and enjoyment of these regional qualities which may include diverse natural environments, cultural and social values; Alignment with state policies to minimise discrepancies where appropriate. The state planning policy overrides the planning scheme where there are discrepancies; Providing the overarching policy position to ensure local government planners consider development proposals which are complex or innovative forms of development; Enabling developments that are crucial or contribute to meeting the tourism demand in the area; and Ensuring that where tourism falls under any other themes that tourism interests are protected, and where compatible land uses exist that tourism opportunities are supported. 20

21 Strategic Framework Checklist Does the strategic framework identify tourism as a theme that includes strategic outcomes to strengthen the business environment for operators and enhances the visitor experience? Does the strategic framework identify the unique tourism attractions of the area and how they are to be managed and enhanced for the use of visitors over the lifespan of the plan? Does the strategic framework reflect the state interest objectives and policies for making or amending a local planning instrument? Does the strategic framework include an outcome that encourages innovative or unique tourism products by identifying that a flexible development assessment process can be exercised? Does the strategic framework identify to the extent practicable what tourism products are in demand, and furthermore encourage land owners, developers and operators to seek tourism opportunities that assist in meeting this demand? Does the strategic framework facilitate tourism opportunities by ensuring their protection against competing interests and incompatible development? Does the strategic framework demonstrate that tourism developments are often compatible with a mix of land uses and are supported in these instances? LEVEL OF ASSESSMENT The levels of assessment are directly related to the complexity of an application and its impacts. In determining an appropriate level of assessment, local government is to consider the scale of the impact, ability to regulate the impact and the ability to provide appropriately informed decisions. The level of assessment on tourism developments on land that is designated for tourism or forms part of a potential tourist precinct (e.g. centres, waterfront developments, recreation and open spaces) should essentially allow for tourism developments to be assessed at a lower level of assessment (exempt, self or code assessment). Examples of compatible tourism developments with respect to land use may include: Ecotourism developments in an Environmental Zone Accommodation hotels in the Centre Zone Bed and Breakfast in Residential Zone Entertainment facilities near major transport nodes Where tourism developments trigger impact assessment due to the zoning of the land (typically the case for when the tourism development is ancillary to the primary tourist attraction), then as part of the impact assessment, local government exercises the Tourism Development Assessment Framework when assessing the development after public consultation period. Incompatible developments that may have adverse effects on the tourism potential (for example, highintensity industrial developments located near major tourism destinations) should require impact assessment or deemed not permissible. Level of Assessment Checklist Within the tourism zone, are the appropriate tourism developments given a low level of assessment of either exempt, self or code assessment? Is there an appropriate level of assessment for tourism developments that meet the tourism demand in the appropriate zone (e.g. short-term accommodation in the centres zone)? Are small scale ancillary activities such as farm accommodation, bed and breakfast accommodation, visitor information centres and the like, given a low level of assessment of either exempt, self or code assessment? 21

22 Are incompatible developments, such as heavy industrial uses, impact assessable or not permissible in the tourism zone? Are local government planners aware of the Tourism Development Assessment Framework that assists in the assessment of impact assessable tourism developments? ZONING The draft Queensland Planning Provisions version 3 introduces a tourism zones category. The inclusion of a tourism zone for larger and specialised tourism activities is encouraged as this would explicitly identify tourism activities as the sole outcome that may be pursued. Within the tourism zone, permissible developments should include the primary (or major) tourist attraction as well as the expansion of this attraction to include more facilities or ancillary services. However, local governments may choose to use broad zoning categories containing a mix of uses. Should this be the case, consideration must be given to: Inherently provide for the delivery and physical dispersal of tourism related activities; Promote tourism in competition with other land use activities; Recognition of tourism as an activity that can be provided as part of a mixed-use offering; and Appropriate levels of assessment that support the delivery of tourism related outcomes. When considering other zones (as tourism developments are compatible over a mix of zones), it is important to recognise that tourism requires other zones to be managed effectively in order to allow for the area to develop their unique tourism product. These zones include: Environmental Zone: Areas in the Environmental Zone require protection from incompatible uses that would adversely affect the values of the environment. Tourism developments, particularly ecotourism facilities, are encouraged in these areas to further promote the conservation and appreciation of these resources. Centre Zone: Centre zones must facilitate a mix of uses that adequately cater for residents and visitors. Tourism developments such as short-term accommodation are considered within these areas for increased accessibility to the wide range of services and facilities. Rural Zone: Agriculture is protected from large, competing interests that do not compliment their use. Tourism developments in these areas typically require a high level of scenic amenity and continued agricultural use to be highly effective. Zoning Checklist Has the plan identified land that currently contains a major tourism attraction as being within the tourism zone? In the presence of no tourism zone, is the site identified in any other way as a tourism attraction that can be expanded appropriately? Are tourism developments listed as permissible developments within the appropriate zones? Are they encouraged as part of a mixed-use offering? Do the provisions in other zones allow for compatible tourism developments, e.g. are tourism opportunities afforded in rural and environmental areas where there is land use compatibility? Is there adequate protection of sensitive land uses (in particularly to the natural environment), in order for tourism developments to thrive on the scenic amenity and values of these environments? 22

23 OVERLAYS Overlays identify areas that are sensitive to the effects of development or land that may be subject to valuable resources. In order to allow for a flexible approach to tourism planning, a specific overlay for tourism (or any associated mapping) is not considered necessary. This allows for less regulation, an absence of triggers for more stringent consideration, and greater opportunities for a tourism developer to identify appropriate sites. Certain types of tourism developments may be compatible with land in other overlays, such as the coastal zone, biodiversity and heritage overlays. These developments may be considered appropriate as examples: Semi-permanent or non-permanent accommodation (e.g. camping) in areas that may be at low risk to coastal hazards. Recreational open spaces in areas that may be at low risk to flooding. Look-outs, tourism activities and some short-term accommodation in areas that are identified as having scenic amenity. A historic museum or related educational facility located within a heritage overlay. Overlays Checklist Are tourism developments constrained by overlays that may not have an effect on its operation? E.g. Camping grounds (or other similar non-permanent structures) should be permissible on land identified in the coastal zone. Is there enough flexibility within the planning scheme for local government planners to apply discretion in identifying compatible tourism uses within the overlays? DEVELOPMENT CODES Appropriate development codes will ensure that a high standard of development occurs, while minimising conflict between nearby land uses. Development codes should work towards achieving the desired outcomes as set for the region from a prescriptive level. At the same time, the development codes must also enable a level of flexibility so that new tourism developments can respond to market demand, allow for creativity and innovation, and ensure that these tourism developments are commercially viable to the developer. Given that tourism developments encompass a wide range of development types, the development codes should remain as performance based and have regard to the overall strategic framework of the planning scheme. Development Codes Checklist Are the performance criteria in the appropriate development codes flexible enough to allow for good development and design outcomes when dealing with different types of developments? Do the performance criteria in the appropriate development codes allow for flexibility in the type of development in order for them to meet the tourism demand? Do the performance criteria of the development codes align to the strategic framework of the planning scheme and reflect the tourism interests adequately? DEFINITIONS A list of definitions for tourism developments is set out in Appendix B. The final definition will be determined by the Queensland Planning Provisions (QPP) and those adopted into the planning scheme. 23

24 APPENDIX A TOURISM DEVELOPMENTS TOURISM DEVELOPMENTS Short-term Accommodation Leisure and Tourism Facilities Ancillary Services Accommodation Hotel Entertainment Facility Food and Drink Outlet Backpacker Hostel Environment Facility Retail Bed and Breakfast Recreation Facility (Major) Commercial Services Cabins Recreation Facility (Indoor) Camping Grounds Recreation Facility (Outdoor) Caravan Park Function Facility Ecotourism Product Information and Cultural Facility Farm-stay Winery Holiday Letting Motel Resort Complex Service Apartment 24

25 APPENDIX B TOURISM LAND USE DEFINITIONS USE DEFINITION EXAMPLES INCLUDE SHORT TERM ACCOMMODATION Short-Term Accommodation Accommodation Hotel Backpacker Hostel Bed and Breakfast Cabins Camping Ground Caravan Park Ecotourism Product The use of premises for temporary short-term accommodation for tourists and visitors (typically not exceeding three consecutive months). Tourist and visitor short-term accommodation (whether or not licensed under the relevant State Liquor Licensing Act) comprising rooms and suites generally not self-contained and which provide ancillary services and may include the provision of food and beverage. Short-Term Accommodation for the purpose of lodging more than 1 person in a shared capacity and providing either communal bathrooms, kitchen, laundry and/or sleeping areas. A residential dwelling house providing tourist and visitor short-term accommodation on a commercial basis. Bed and Breakfast facilities are operated and maintained by the resident host and guests are generally provided with breakfast. Detached, self-contained tourist and visitor short term accommodation units that may or may not be serviced by a managing body. Land designated and managed for the purpose of short term recreational lodging or camping in tents or other temporary shelter. Sites may or may not include amenity buildings, cabins and managers facilities. The use of premises for the parking and/or siting of two or more mobile accommodation facilities such as caravans, cabins or relocatable homes. Sites may include ancillary facilities for park patrons such as amenity buildings, recreational facilities, storage areas, a convenience shop, and manager s facilities. Ecotourism encompasses a broad spectrum of environmentally responsible activities that increase visitor appreciation, develop a better understanding of the natural and cultural heritage and are carefully Accommodation Hotel, Backpacker Hostel, Bed and Breakfast, Cabins, Camping Ground, Caravan Park, Nature-Based Tourism, Farm-Stay, Holiday Letting, Motel, Resort Complex and Serviced Apartment. NA Backpacker Hostel uses include but are not limited to Backpacker lodge, Boarding house and Hostel. Properties that offer hosted accommodation such as Bed and Breakfast, Guesthouse or selfcontained cabins, lodges and houses. Guests expect to interact with their resident host and to receive a highly personalised experience during their stay. Properties that offer self-catered accommodation such as studio, onetwo-three bedroom, or penthouse apartments, as well as cottages, chalets, villas, cabins or houses. NA Properties that offer powered and unpowered sites for caravans and tents as well as s elf contained holiday units or cabins. 25