Department of Infrastructure, Local Government and Planning State Planning Policy state interest guideline Tourism April 2016 Great state. Great opportunity.
Preface Using this state interest guideline The Queensland Government established the State Planning Policy (SPP) to define the specific matters of state interest in land use planning and development. To support the implementation of the SPP, each state interest in the SPP is supported by a state interest guideline such as this one. This state interest guideline must be read in conjunction with the SPP. The SPP does not prioritise one state interest over another and thus provides flexibility for local governments to respond to specific regional and local contexts. This allows for the state interests to be considered as an entirety rather than as individual competing or conflicting priorities. The SPP guiding principles carry equal weight with the state interests and must be considered by local government as part of the integration of state interests as an entirety rather than as individual policies. This supports decision making which integrates and balances the economic, environmental and social needs of current and future generations, promotes innovative approaches to design and development where consistent with the strategic intent of a planning scheme and enables flexible and performance-based decisions as part of the assessment process. Where text in this guideline is in a coloured text box, it is an excerpt from the SPP and is the state s policy about a matter of state interest. In relation to making or amending a planning scheme, the SPP quoted text defines what a local government should do in preparing or amending a planning scheme (ie. the state prefers this policy but will consider alternative approaches based on specific local context or issues). Content within this state interest guideline that is not an excerpt from the SPP provides further context and explains how the SPP policies can be applied. It does not introduce or define any new policies which do not exist in the SPP itself. The use of such guidance material is optional it does not form a statutory component of the SPP and hence is not a mandatory requirement of the state. Accountable Infrastructure Energy and water supply State transport infrastructure Strategic airports and aviation facilities Strategic ports Positive Liveable communities and housing Housing supply and diversity Liveable communities Producing a liveable, sustainable and prosperous Queensland Economic growth Outcome focused Agriculture Development and construction Mining and extractive resources Tourism Integrated Safety and resilience to hazards Emissions and hazardous activities Natural hazards, risk and resilience Efficient Environment and heritage Biodiversity Coastal environment Cultural heritage Water quality 2
Department of Infrastructure, Local Government and Planning Contents PART A Background and core concepts... 4 PART B Integrating the state interest into planning schemes... 5 PART C Application of interim development assessment requirements...8 PART D Model code provisions... 9 1. Example of local planning scheme provisions... 9 PART E Supporting information... 10 1. Tourism planning resources...10 3
PART A: Background and core concepts PART A State interest tourism Tourism planning and development opportunities that are appropriate and sustainable are supported; and the social, cultural and natural values underpinning the tourism developments are protected to maximise economic growth. Background Tourism is vital to the Queensland economy, creating jobs, supporting communities and driving regional economic development and diversification. The Queensland Government is committed to creating the environment for new investment, revitalisation and redevelopment of the tourism industry. Local governments have an important role in supporting this commitment by ensuring the needs of tourism are recognised within planning schemes and that appropriate tourism development opportunities are facilitated. Further advice on best-practice tourism planning, including detailed model planning scheme provisions and case studies are included in Next generation tourism planning: a guideline for planners in Queensland www.dtesb.qld.gov.au/tourism/tourism-planning Core concepts Planning to support tourism While in some cases tourism development can be the result of forward planning, more often than not projects are the result of entrepreneurial initiative and as such are difficult to predict and plan for. Planning schemes which integrate the state interest in tourism need to be able to respond flexibly to these proposals, and avoid inadvertently restricting or limiting appropriate tourism development. Recognising the diversity of tourism development Tourism developments are highly diverse in their type and scale, from multi-billion dollar mega-resort projects to family-run bed and breakfasts. If designed in context, there is a type of tourism activity or development for virtually every place in Queensland, from secluded islands to underground mines. To integrate the state interest, the planning scheme needs to ensure that it can differentiate between the many types of tourism developments and provide a fit for purpose assessment of tourism-related development that is proportionate with a development s likely benefits and impacts. Appropriate and sustainable tourism development Tourism developments can bring a number of economic, environmental and social benefits to their local community, region and wider area. Appropriate and sustainable tourism development contributes to the economic viability of places and people through employment and investment, while not detracting from the natural, social and cultural values that drew tourists there in the first place. Appropriate and sustainable tourism development can complement and enhance the built and natural environment and can play an important role in increasing knowledge and appreciation of the broader ongoing management of the environmental and natural resources that contribute to the tourist experience. Thinking about tourism activity and tourism development in terms of place makes it easier to understand the appropriateness of tourism proposals (which may be unforseen or unexpected), and is recommended as a means of planning to facilitate appropriate tourism development. A planning scheme can provide clarity about design expectations for an area or place, and provide the appropriate outcomes of a design for particular localities or areas. 4
PART B: Integrating the state interest into planning schemes PART B Policy 1 Considering the findings of tourism studies and plans that have been prepared by the state for the local and/or regional area. Tourism studies and plans are undertaken at a national, state, regional and local level. Understanding these documents and the challenges and opportunities they identify for tourism development at the local government level can assist in ensuring the planning scheme contributes to the growth of the tourism industry in the local area. DestinationQ is a partnership between the Queensland Government and the tourism industry to invest, excel and grow Queensland's visitor economy. The partnership is underpinned by a long term plan for the future, Destination Success: the 20 year plan for Queensland Tourism. https://www.destq.com.au/20-year-plan/vision-strategy Regional tourism planning is led by the Queensland Government s Tourism and Events Queensland (TEQ). TEQ have produced a series of Destination Tourism Plans, which identify a shared vision and direction for each destination. The plans provide a resource which identifies a vision, goals and priority strategies for destinations that can inform the research and drafting of planning schemes. http://teq.queensland.com/en-ie/about-teq-new/plansand-strategies/destination-tourism-plans How to appropriately integrate the policy 1.1 Consider as an informational input, relevant, stateendorsed tourism planning strategies prepared for the local area. For example, Destination Tourism Plans include priorities, strategies and actions which could inform the drafting of the planning scheme. 1.2 Consider the anticipated needs, scale and type of tourism land uses and how tourism contributes to broader planning scheme outcomes like conservation and economic growth. 1.3 The Department of Tourism, Major Events, Small Business and the Commonwealth Games (DTMESBCG) can provide advice as to the most appropriate strategies and plans for the local government area. It is recommended that local governments undertake early engagement with DTMESBCG for advice and assistance on supporting tourism through planning schemes. REFER TO: PART E: Supporting information 1. Tourism planning resources 5
Department of Infrastructure, Local Government and Planning PART B Policy 2 Identifying and protecting opportunities, localities or areas appropriate for tourism development, both existing and potential. Tourism encompasses a diverse range of development types and sizes and can exist within a range of land use settings, places and locations not just within urban areas. It should not be precluded from sensitive or rural areas which they are typically associated with. Tourism development is not a one size fits all and nor is it a free for all where any type of tourism development can go anywhere. Tourism development must be sustainable and appropriate to the local context and character of a place. Planning schemes should include development assessment mechanisms that allow local governments to respond in a positive manner to tourism development proposals. This policy also aims to identify and protect land that is well suited for tourism development or is currently being used for tourism purposes and to discourage the loss of tourism opportunities. How to appropriately integrate the policy 2.1 Identify within the strategic framework existing tourism localities, precincts, sites of local (and in some cases regional and international) significance. 2.2 Include within the strategic framework, strategic outcomes relating to existing tourism areas and identified areas suitable for the development of tourism related uses. 2.3 Where considered appropriate, strategic framework mapping should identify tourism assets. The method of identifying tourism assets will depend on the local context. Assets and features may be specifically identified in the planning scheme for their tourism values, or a broader recognition of the assets in the planning scheme more generally. 2.4 Identify in the strategic framework tourism activities that are encouraged, where they will be located and how competing issues are to be resolved. Preferred development outcomes for identified areas should seek to maintain tourism values, character and amenity. 2.5 Consider the use of a tourism opportunities overlay or local plan provisions to encourage tourism development. A local plan or overlay could provide for lower levels of assessment for particular land uses and contain provisions to promote tourism development in particular areas. For instance, making limited overnight camping for self-contained recreational vehicles self-assessable development in the rural zone. See Sections 2.2 and2.3 in the Next Generation Tourism Planning guideline for information on tourism in rural places, rural towns and townships. 6
Department of Infrastructure, Local Government and Planning PART B Policy 3 Facilitating and streamlining the delivery of sustainable tourism development that: a) is complementary to and compatible with other land uses, and b) promotes the protection or enhancement of the character, landscape and visual amenity, and the economic, social, cultural and environmental values of the natural and built assets associated with the tourism development. How to appropriately integrate the policy 3.1 Within the strategic framework include outcome statements specifically identifying areas where tourism can be developed as a complimentary and compatible use, for example in rural or natural places. 3.2 The strategic framework should identify and protect local tourism assets such as key tourism routes, high scenic amenity areas, current tourism destinations and key visitor entry/exit transport gateways. 3.3 Include provisions in outcome statements of the relevant zones which provide clear direction in how tourism development can be supported. Tourism development, particularly smaller scale uses which are complementary and compatible with existing and surrounding land uses can be afforded lower levels of assessment for particular zones, for example, self-assessable small-scale farm stay operations in the rural zone. The Queensland Camping Options Toolkit provides local governments with guidance on developing camping options. https://www.dtesb.qld.gov.au/ data/assets/pdf_ file/0008/148319/qdts-camping-options-toolkit.pdf Policy 4 Planning for appropriate infrastructure and services to support and enable tourism development. How to appropriately integrate the policy 4.1 Consider infrastructure (such as transport and other urban services) and facilities needed to support tourism development in the local government area. The strategic framework could identify key infrastructure networks which support the tourism industry. 4.3 In areas where tourism is prevalent or particularly encouraged, ensure the planning scheme supports the development of related services which support tourism such as local convenience stores, cinemas, taverns etc. 4.2 Consider future trends and growth in the tourism sector and how it impacts on demand for infrastructure in the local government area. See for example CSIRO's The future of tourism in Queensland: Global megatrends creating opportunities and challenges over the coming 20 years. https://publications.csiro.au/rpr/ pub?pid=csiro:ep134277 7
PART C: Application of interim development assessment requirements PART C There are no interim development assessment requirements for this state interest. 8
PART D: Model code provisions PART D Example model code provisions for the tourism state interest has been prepared below that may be adapted by a local government when making or amending a planning scheme. Where a local government seeks to adopt model code provisions, it should ensure the provision's suitability to local circumstances prior to adoption. It is not intended that a local government would use all of these model provisions verbatim, as local context and tailoring is an essential part of adopting the SPP. 1. Example of local planning scheme provisions Example planning scheme provisions identifying how the SPP state interest tourism could be used and adapted, are provided in Part 5.0 of Next generation tourism planning: a guideline for planners in Queensland https://www.dtesb.qld.gov.au/tourism/tourism-planning The model planning scheme contents should not be seen as the only way to appropriately reflect tourism state interests. There will be variation in approach to reflect the many different forms of tourism and the unique qualities, opportunities and aspirations for each region and local area. 9
PART E: Supporting information PART E 1. Tourism planning resources The future of tourism in Queensland: Global megatrends creating opportunities and challenges over the coming 20 years CSIRO and Queensland Government https://publications.csiro.au/rpr/ pub?pid=csiro:ep134277 Destination Success: The 20 year plan for Queensland Tourism Department of Tourism, Major Events, Small Business and the Commonwealth Games https://www.destq.com.au/20-year-plan/vision-strategy Next generation tourism planning: a guideline for planners in Queensland Department of Tourism, Major Events, Small Business and the Commonwealth Games www.dtesb.qld.gov.au/tourism/tourism-planning Tourism and Events Queensland Destination Tourism Plans http://teq.queensland.com/en-ie/about-teq-new/plansand-strategies/destination-tourism-plans Queensland Camping Options Toolkit Department of Tourism, Major Events, Small Business and the Commonwealth Games https://www.dtesb.qld.gov.au/ data/assets/pdf_ file/0008/148319/qdts-camping-options-toolkit.pdf 10
The State of Queensland, April 2016. Published by the Department of Infrastructure, Local Government and Planning, 100 George Street, Brisbane Qld 4000, Australia. Licence: This work is licensed under the Creative Commons CC BY 4.0 Licence. To view a copy of the licence, visit http://creativecommons.org/licenses/by/4.0/deed.en. Attribution: The State of Queensland, Department of Infrastructure, Local Government and Planning. The Queensland Government supports and encourages the dissemination and exchange of information. However, copyright protects this publication. The State of Queensland has no objection to this material being reproduced, made available online or electronically but only if it is recognised as the owner of the copyright and this material remains unaltered. The Queensland Government is committed to providing accessible services to Queenslanders of all cultural and linguistic backgrounds. If you have difficulty understanding this publication and need a translator, please call the Translating and Interpreting Service (TIS National) on 131 450 and ask them to telephone the Queensland Department of Infrastructure, Local Government, and Planning on 13 QGOV (13 74 68). Disclaimer: While every care has been taken in preparing this publication, the State of Queensland accepts no responsibility for decisions or actions taken as a result of any data, information, statement or advice, expressed or implied, contained within. To the best of our knowledge, the content was correct at the time of publishing. Any references to legislation are not an interpretation of the law. They are to be used as a guide only. The information in this publication is general and does not account for individual circumstances or situations. Where appropriate, independent legal advice should be sought. For the most up to date version of the State Planning Policy, please refer to the Department of Infrastructure, Local Government and Planning website www.dilgp.qld.gov.au/spp. To obtain a printed copy of this guideline, please contact us via the contact details provided at the end of this guideline. State Planning Policy Department of Infrastructure, Local Government and Planning PO Box 15009, City East, Queensland 4002 tel: 13 QGOV Great email: state. SPP@dilgp.qld.gov.au Great opportunity. www.dilgp.qld.gov.au