NEXT GENERATION TOURISM PLANNING

NEXT GENERATION TOURISM PLANNING PIA QLD State Conference Sugar and Spice Diversity in our Regions November 2013 Shannon McGuire, B.Sc, GDURP, MPIA Principal Planner - Buckley Vann Town Planning Consultants Abstract Tourism comes in all shapes and sizes and can be anywhere and cover everything from camping grounds, underground mines to luxury island resorts and everything in between. The Queensland Government has identified tourism as one of the four economic pillars and is a State interest in the emerging single State Planning Policy (SPP). There is now significant responsibility on local governments to actively plan and provide for tourism development in their planning schemes. How do we successfully plan for tourism and incorporate this planning into a statutory land use planning framework, given tourism is a highly dynamic industry and can be anywhere, big or small? Equally, it is essential to recognise that tourism development is not a one size fits all with the qualities and strengths being different across regions and communities and, nor is it a free for all where any type of tourism development can go anywhere. A fundamental principle is that tourism development must be sustainable and appropriate to the local context and character of a place and designed in a way that does not compromise the values or qualities which make an area important for tourism in the first place. Put simply, it s about having the right product, at the right time and in the right place. This paper explores some of the responses to promote tourism at the local level in planning schemes. It advocates a new approach to tourism planning using a strategic place type framework and identifies the important principles underpinning successful and sustainable tourism development. This paper is based on the draft A Guideline for Queensland Planners (guideline), prepared by the Queensland Department of Tourism Major Events, Small Business and the Commonwealth Games (DTESB) and Buckley Vann Town Planning Consultants (2013). is a guideline for local government planning in Queensland and will be particularly useful for those involved in planning scheme drafting as it provides guidance on how to reflect tourism State interests into planning schemes. 1 Buckley Vann Town Planning Consultants

1. What is tourism? Tourism and how to effectively plan for it in a statutory context, is not widely understood by planners in Queensland. Tourism activity and tourism development comes in all shapes and sizes. So, how do we define tourism and better understand the planning dimensions of tourism? The World Tourism Organisations defines tourism in the following way: 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. Tourism refers to all activities of visitors including both tourists (overnight visitors) and same day visitors. (WTO, 1994) So, tourism is much more than annual family holidays. It is an economic and social phenomenon mass movement of human behaviour which almost all of us are part of and participate in, often many times each year in near and far locations. (WTO, 1994) Tourism is also a complex and dispersed economic activity. It includes tourism development in the traditional sense, such as hotels, resorts and airports, but it also includes areas of activity such as tours, branding, marketing and positioning. Hallmarks of tourism that have a planning dimension include: all types of accommodation, visitor attractions, natural and built assets, systems for visitor information, transport, supporting infrastructure, retail activities and community and supporting infrastructure (QTIC, 2013). The Queensland Tourism Industry Council (QTIC) suggests tourism is an activity that brings with it a land use dimension. While this is certainly true, it is not the same as saying that tourism is always a discrete land use. Within a statutory context, it is important to recognise that tourism fits across a broad range of use definitions and activity groups, including mixed use development. Tourism is to be recognised as a product, an experience, an activity and a set of complementary land uses that requires several sectors and land use components to work harmoniously together. 2. Tourism a growing industry in Queensland In the year to September 2012, the tourism industry generated $21.7 billion of visitor expenditure in Queensland, or $59 million a day. Over 136,000 Queenslanders (5.9% of workers) are directly employed in the tourism industry (QTIC, 2013, ABS 2013). Already a significant industry, the Queensland Government has committed to grow the tourism industry as part of its plan to grow the State s economy and to return the Queensland tourism industry to number one in Australia. An economic vision for the tourism industry has been established. This vision seeks to achieve an ambitious growth rate of 7% per annum in overnight visitor expenditure, which amounts to $30 billion by 2020. (DTESB, 2012). The economic vision for tourism is supported by policy reform, in the form of the emerging single SPP, which identifies tourism as one of the four economic pillars and seeks to enable sustainable tourism development to establish in urban, rural, coastal or natural areas, metropolitan, regional and remote locations throughout Queensland. Achieving the State Government s commitment to prioritise and grow the tourism industry requires a whole of government approach. Identifying tourism as a State interest in the draft single SPP is a significant first step towards this goal. 2 Buckley Vann Town Planning Consultants

Planning for tourism is crucial to the success and longevity of the tourism industry in Queensland. However, it is important to recognise that allowing tourism to develop without first planning for it can often lead to developments that suffer from environmental and social impacts and difficulties in effectively competing with those tourism destinations that have benefited from a planning process (QTIC, 2013). It is also essential to recognise that 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. A fundamental planning principle is that tourism development must be sustainable and appropriate to the local context and character of a place and not compromise the values and qualities underpinning the importance or attractiveness of a place for tourism purposes. Development needs to provide bonafide community benefits and not be development for the sake of development. 3. Tourism planning - statutory context Tourism planning occurs at national, state, regional and local levels. Sometimes, tourism planning focusses on a particular destination or market and other times on a particular segment of tourism, like ecotourism or drive tourism. From a statutory planning context, the diagram below shows the conceptual relationship between tourism as one of the four economic pillars and the linkages between tourism strategic plans (nonstatutory), the SPP, regional plans, planning schemes and development assessment. 3.1 The role of the single state planning policy The Queensland government has an important role to play in defining how tourism can contribute to the economy and identifying major tourism generators. The State has identified the tourism industry as one of the four economic pillars and is committed to growing the State s economy. To effectively facilitate and encourage tourism development in a statutory planning context, the tourism mandate or head of power must be provided in the SPP. It is also important to integrate tourism across other relevant State interests and not just focus tourism through a single land use lens. The statutory policy outcomes in the SPP also need to be explicit about enabling appropriate and sustainable tourism development to establish in urban, rural, coastal and natural areas and within metropolitan, regional or remote locations. This is essential to providing an appropriate and holistic policy response to tourism development and is vital to the mandate of the SPP and the State Government s objective to facilitate and enable tourism development. 3 Buckley Vann Town Planning Consultants

3.2 The role of regional plans Statutory regional plans are important planning instruments for providing regional direction for tourism State interests including resolving high level land use conflicts and providing clarity and direction on competing State interests. They can also be used to identify specific tourism hotspots throughout the State as well as the unique tourism attributes that should be encouraged within each region. Historically though, tourism has been underrepresented in regional plans. Given regional plans have a significant influence on planning and a comprehensive, relevant and accurate framework for regional tourism planning already exists, an obvious opportunity presents itself to include more tourism content in regional plans. Regional context and specificity on tourism policy can be informed by various existing tourism strategic planning documents, such as Tourism Opportunity Plans (TOPs), produced and updated by the Queensland Government and Tourism Queensland. TOPs provide excellent direction and commentary on regional and local tourism opportunities and would be useful sources of information to inform State regional plans. 3.3 The role of planning schemes Local planning has arguably the most influential role to play, particularly through the drafting of planning schemes. Long term visions and goals determined by the strategic framework, as well as the intent and criteria for development within each zone, shape the type, scale and extent of tourism development possible within a local government area. Planning schemes are required to reflect the mandate and policy directions of the SPP. Therefore, they have an important role in facilitating and enabling sustainable tourism development through their implementation in development assessment. Telling the story about tourism in the local context and ensuring policy directions and outcomes are described in the strategic framework and reflected in outcome statements across a broad range of zones (including in the non-urban zones), will best promote and facilitate tourism land use and development. Streamlining levels of assessment is also an important and very effective measure to encourage and facilitate tourism development. Planning schemes can also inhibit tourism development that is commercially viable or is effective in meeting changing market demands. They can do this explicitly by discouraging tourism or by simply failing to consider tourism adequately. Planning schemes can help facilitate sustainable tourism development in four key ways: They can be flexible to respond to the market and cater to the needs of the tourist by providing for tourism development - accommodation types, attractions, support facilities, infrastructure and other supporting services. They can recognise, protect and enhance the setting, character, sense of place, identity and the landscape, environmental and cultural heritage features, assets and values that make a place or destination attractive for tourism. They can encourage and make it easier for sustainable tourism development to occur across a broad range of zones and locations and influence development costs through streamlining assessment levels and incentivising or providing special treatment for tourism development where appropriate. 4 Buckley Vann Town Planning Consultants

3.4 The role of other tourism plans and strategies Non-statutory regional tourism strategic planning is generally led by the Queensland Government s tourism agency, Tourism and Events Queensland (TEQ). These plans include Destination Tourism Strategies, and Tourism Opportunity Plans (TOPs) and they provide important regional and local direction on tourism outcomes and are excellent sources of information to inform strategic commentary for statutory regional plans and planning schemes. These plans have been prepared to support investment attraction, provide direction on growing markets, marketing and promotion activities, and industry development and catalyst projects. From a planner s perspective, TOPs, in particular provide excellent direction on the sustainable development of tourism for a specific region. TOPs have been prepared for all regions across Queensland. TOPs typically identify: a tourism vision for the region; tourism precincts; new and upgraded tourism product including catalyst projects; the need for new investment in infrastructure that supports tourism; and tourism supply and demand trends. Tourism trends and the contribution that tourism makes to the economy are also acknowledged by these plans as a driver for proper planning and considered development. TOPs can be considered the key link that provides local and regional context and specific policy directions and outcomes for tourism reflecting the SPP head of power. So, how do we plan and provide for sustainable tourism development and what are the hallmarks or critical success factors for sustainable tourism development? 5 Buckley Vann Town Planning Consultants

4. Sustainable tourism development a framework for success The research underpinning the Tourism guideline 1 suggests a framework for defining sustainable tourism development. It is a simplified framework for success, closely aligned to the well known triple bottom line approach measuring economic, environment and social inputs to sustainable development. When applied to the tourism planning context, the framework features: Economic benefits: o To the tourism operator, but also the community and region in which the tourism activity takes place. o Tourism is a commercial activity that depends on how attractive it is to visitors (DCLG 2006). Attractive memorable and financially successful tourist development do not happen by accident, and will be supported by well designed buildings, facilities and infrastructure and well designed experiences. Environmental benefits: o Environmental impacts of tourism occur at development, construction and operational stages of a project. Good design is key to minimising impacts of development, be they energy use, water consumption, waste, transport, loss of natural habitats and biodiversity, water quality impacts or other effects. o Tourism development can have a role in improving or enhancing environmental values on the ground and enhancing community awareness and appreciation of the environment. o Many tourism developments make a feature of their environmental credentials and can enhance natural features and values. Interpretative and educational experiences with an emphasis on the natural environment should be pursued. Tourism development, when done well, can have positive environmental benefits. 1 The Tourism Guideline was informed by case studies of existing best practice tourism operations, site visits, interviews, desk top analysis, workshops with an advisory expert panel and a review of existing tourism policies, plans and strategies devised by the Queensland Government, other jurisdictions in Australia and international agencies. 6 Buckley Vann Town Planning Consultants

Social and cultural benefits: o Well designed tourism developments offer social and cultural benefits to both visitors and locals. o Tourism development can celebrate and bring to life, the social and cultural identity of a place. o Respect for community values and social benefits like employment and locally focused tourism activities are important. Tourists often travel to an area to experience its people and culture. Sustainable tourism development provides economic, environmental and socio-cultural benefits and should be enabled through planning. It is about building a type and a style of tourism development that contributes to the economic vitality of places and people through employment and investment. It contributes to communities sense of pride, place attachment and connection with others and it encourages sustainable stewardship over the environmental and natural resources that contribute to and underpin the tourist experience. 5. Critical Success factors for sustainable tourism development We know that tourism development comes in all shapes and sizes, but despite this variety, the research suggests five common and critical success factors that can help achieve sustainable tourism development. It is important for planners to understand these factors, as all have relevance to planning and planning processes. The success factors are: Knowing the needs of the tourist; Creating experience; Developing in context; Enhancing setting; and Good process. Achieving sustainable tourism developments may be supported by ensuring development reflects these key factors. 5.1 Knowing the needs of the tourist The case study research indicates understanding the needs and motivations of tourists and tourism markets were a strong feature of the successful tourism projects. A tourist might come from anywhere in the world and have all kinds of interests and motivations for their travels. There is no average tourist. There are many tourism markets. Understanding the market, the industry and the particular challenges of developing and supporting tourism that are unique to the location, is critically important. It is also about understanding the characteristics of tourist movement to and within the destination, how they experience the destination, their purpose of visit, their decision-making around their visit and how long they stay. In all cases of the case study research, the tourism product is carefully tailored to the tourism markets. 7 Buckley Vann Town Planning Consultants

What does this mean for planners? Tourism and the buildings and infrastructure associated with it, responds to the needs of the tourist. This is often linked to the attributes of the location where the tourism takes place, but it is common to have different tourist activities and infrastructure in the same location and still be appropriate. It s not a one size fits all! Tourism can result from plan-led and/or entrepreneurial processes. There appears to be a bias towards the bottom-up or entrepreneurial approach, indicating that flexibility is an essential part of planning for tourism development. Tourism operators and developers often know the characteristics of the market and are able to design a proposal to accord with a robust commercial understanding. All development contexts are different and it is important to understand the needs of the industry. 5.2 Creates experience Tourism is all about experience and products. Research suggests genuine experiences are what motivate tourists. A focus on connecting to place or local communities, or a learning experience, can be ways to form a genuine experience. The tourism product is what the customer buys; the tourism experience is what they remember. (Tourism and Events Queensland) As planners, we mostly deal with tourism development in the context of accommodation, attractions and transport etc, however, how these are planned and developed give rise to the experience. Uniqueness of experience was also found to be an attractor. This does not mean the same or similar activities cannot be found in different locations. A different location might be enough to make the experience different. Regional synergies or clustering of tourism development can also be common. Nearby operators can offer complementary but not the same experience or tourism product. Nearby operators can help make up a cluster of tourism options where the whole is greater than the sum of the parts. Good examples of clustering and regional synergies are the Stanthorpe wine region and, the cluster of theme parks in the northern Gold Coast. What does this mean for planners? Expect the unexpected enterprising operators will create new experiences in familiar settings. This might be a challenge for planning schemes. The Story Bridge Adventure climb in Brisbane is an excellent example of a tourism experience in an unexpected and unplanned setting. While there may be some exceptions, tourism experiences that are genuine, connect to place and the people in it and including educational or learning experiences, are a hallmark of sustainable tourism. These criteria could be useful in considering the appropriateness of tourism proposals. Regional synergies and clustering of tourism activities is common. Most tourism developments do not offer the whole destination experience on their own. Sometimes, regional synergies can be predicted, planned for and supported. Consideration of cumulative impacts should be as early as possible. When is one more development too much? 8 Buckley Vann Town Planning Consultants

5.3 Developing in context Tourism can fit everywhere.if it s appropriate to place. This does not mean tourism development should be camouflaged or inconspicuous in the landscape. Sometimes, it can be good to make a bold statement through architecture and design. A good example of bold architecture is Southern Ocean Lodgement, Kangaroo Island. Several case studies identified access as a key issue in developing appropriate to place. In natural places, difficult or rugged access might be part of the experience. In urban and city places, most tourists will not have a car making traditional car parking requirements unnecessary. What does this mean for planners? Impacts from tourism development cannot be completely avoided, but they can and definitely should be minimised and mitigated. In some cases, residual impacts should be offset, compensated and result in a net benefit. This is particularly relevant to the design, construction and operational phases of a tourism project within or adjacent to natural areas or environmentally sensitive areas. Tourism development must complement and enhance the built and natural environment. A key question for planners is: Is it appropriate to place? Good design plays a key role in producing the economic, environmental and social benefits to the local community, region and wider area, often through responding to the natural setting and identified tourism needs. Being appropriate to place does not always mean a sympathetic design. 5.4 Enhancing setting Many successful tourism developments do not only recognise or complement their setting, they enhance or improve it. For example, at Lilydale Farmstay, the operators are enhancing the natural habitat values of the property by planting and maintaining koala habitat and wildlife corridors. This kind of environmental benefit fits well with the motivations of their guests to get close to native wildlife. Planners need to think about the broader benefits, including environmental benefits a tourism development may bring. What does this mean for planners? Enhancing setting means identifying the sense of place around a project and designing to enhance it. The value of good design is key. Tourism is diverse and standard designs for tourism development do not exist. Adherence to best practice design principles and process are key to developing a good design. 9 Buckley Vann Town Planning Consultants

5.5 Good process In many instances, tourism projects are often entrepreneurial, rather than plan-led. Difficulty in obtaining the necessary development approvals including long assessment timeframes and inappropriate conditions, were cited as a common problem across tourism operators. What does this mean for planners? Good process for tourism development is recommended as an area of focus for planners. Lengthy approval timeframes can be reduced by streamlined assessment levels where appropriate, increased use of pre-lodgement meetings and establishing a dedicated fast-track team or similar, to provide advice to the applicant and to assist in facilitating the application process. 6. Enabling sustainable tourism We know that tourism comes in all shapes and sizes and can be big or small. A clear finding of the research is that tourism can fit almost everywhere. However, it is this very diversity in the form, type, size, location and impacts of tourism that distinguishes it from any other type of development. From a statutory planning context, this makes it difficult to define a distinct form and type of development that tourism embodies and it also means that tourism should not always be viewed through a single land use lens or zone, but rather, tourism should be facilitated across a broad range of appropriate zones. 6.1 The zoning dilemma why traditional approaches don t work for tourism The traditional approach to allocate land to a specific land use zone, for example, residential, commercial, industrial, centres, conservation, tourism etc, is not the most effective way to facilitate tourism. This is because tourism is an activity that takes different forms in different places, mainly because of the diverse characteristics of the places it occurs. Tourists visit different areas for different reasons and to enjoy different experiences. It flows that the built infrastructure required for tourism will therefore vary from area to area. Tourism is certainly not a one-size-fits-all product. (DCLG, 2006) The pitfalls of a single zone approach to plan and provide for tourism have long been recognised. basic dilemma in tourism planning of predicting future land use requirements and translating assessed demand into land use zones..the inescapable conclusions are that predicting future land use need for tourism is difficult, and that planning agencies tend to be unwilling to indulge in practices which they consider should best be left to the development industry and entrepreneurial initiative. An inescapable conclusion to be drawn from any examination of tourism development is that land use planning systems, and the statutory frameworks are designed to cope best with the conventional land uses such as residential, retail/commercial and industrial, rather than with the peculiarities of tourism phenomena which may be sites, facilities or may be as intangible as environmental and aesthetic circumstances (views, vistas, multiple-use forests and so on). In a dynamic cycle of social and economic change, forecasting future demand is hazardous because the domain of tourism planning is inextricably linked to many factors which defy accurate prediction attitudes to work and leisure, ability and propensity to travel, expenditure of discretionary income, work force levels, diversity of leisure facilities, the 10 Buckley Vann Town Planning Consultants

psychological search for new experiences, attitudes to natural and built environment, entrepreneurs initiative, government regulation and so on; (Zoning for Tourism A response to demand forecasts or land suitability assessments, Michael Fagence, Queensland Planner, June 1987, page 3) In some circumstances however, a single tourism zone may be useful to protect an existing tourism development or, larger or specialised tourism uses, cluster of uses or where regional synergies can be predicted and planned for. This approach gives a clear indication that tourism development is the dominant use of land and will afford a level of protection from redevelopment for other land uses that may weaken or undermine short or long term tourism activity in an area identified as important for tourism. Beachside caravan parks are a land use that would benefit from such protection. It may also be possible to identify some sites proposed for or strategically important to future tourism development. These may also be located in the tourism zone. Such sites may not necessarily be suitable for immediate development, but instead might be identified to facilitate long term protection of land for tourism purposes when economically appropriate and might be identified owing to their special characteristics of: Accessibility; Uniqueness; Setting; Tourism activities and amenities; Supply of land; Suitability in a land use context. However, relying on a single tourism zone and trying to pick winners, will not enable the planning scheme to respond to rapid market changes, entrepreneurial projects and emerging trends. To provide greater flexibility and optimise the planning scheme s potential to promote tourism, it is better to provide for and embed tourism across a broad range of zones and place types, supported by outcome statements that make this intention clear and with appropriate levels of assessment that take a risk tolerant approach. 6.2 The right place: enabling tourism development through place planning' The research undertaken to inform the guideline clearly indicates that tourism can fit almost everywhere, if designed in context and appropriate to place. Equally so, it is essential to recognise that 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. A fundamental planning principle is that tourism development must be sustainable and appropriate to the local context and character of a place and designed and operated in a way that does not compromise the values or qualities underpinning the attractiveness of a place for tourism purposes. Tourism development must deliver sustainable tourism outcomes including genuine benefits for the local community, environment, economic, cultural and social dimensions and not be development for the sake of development. There s a type of tourism for every type of place. A place based approach makes it relatively easy to plan for tourism. Thinking about tourism development in terms of place, makes it easier to understand the appropriateness or otherwise, of tourism proposals and is recommended as a means of planning strategically for tourism. The draft Guideline (2013) provides 11 Buckley Vann Town Planning Consultants

planning guidance for tourism in natural places, rural places, rural towns and townships, suburban and urban neighbourhoods, town and city centres and, specific use places. ( Tourism Guideline pg 22) 7. What does this mean for planning scheme drafting? In planning scheme drafting, tourism needs to be recognised in the context that it can potentially fit everywhere, across a broad range of zones and alongside other land uses. The place planning approach provides a mechanism to describe development expectations and outcomes for different zones and places and typical or suitable types of tourism development likely to be found within them. The draft Guideline (2013) provides guidance on approaches to incorporating tourism into planning schemes, including example planning scheme provisions showing how the SPP state interest for tourism and the concepts in the guideline can be implemented in a planning scheme. The example provisions include guidance on writing strategic frameworks, zone outcomes statements, choosing levels of assessment and other measures to incentivise or encourage tourism development. The example provisions in the guideline are intended to make it easier for local governments to facilitate and enable tourism through planning and to reflect tourism state interests. They can be modified to reflect local circumstances and it is expected there will be variation in approach across local governments in response to the many different forms of tourism and the unique qualities, opportunities and aspirations for each region and local area. 12 Buckley Vann Town Planning Consultants

Some guiding principles for scheme drafting: Getting the balance right Recognise that tourism development can complement but also enhance and improve the setting, character, natural values and economic vitality of a place and community. Tourism development and activity involving the natural environment should be symbiotic with the values of nature, and promote the conservation and enhancement of the environment. Developments involving conservation areas or National Parks should be consistent with the ecotourism principles outlined in the Queensland Government s Ecotourism Plan. Defining tourism Recognise that tourism fits across a broad range of use definitions including mixed use development. Tourism is to be recognised as a product, an experience, an activity and a set of complementary land uses that requires several sectors and land use components to work harmoniously together. Planning for tourism requires a destination approach that allows compatible land uses to coexist (QTIC, 2013). Strategic framework Zoning Recognise the strength and importance of the strategic framework to facilitate diverse tourism opportunities in a range of place types and land use settings. Telling the tourism story or tourism vision through strategic commentary provides the head of power and policy direction for the planning scheme the rest takes care of itself. The strategic framework is a place to articulate planning strategy, but also a place in the planning scheme where some flexibility can be inbuilt. Consider taking a place planning approach to enable and explain tourism development policies and outcomes expected for different places eg: rural, coastal and natural areas, townships, urban neighbourhoods, town and city centres etc. A single tourism zone is useful to protect an existing tourism development, larger or specialised tourism uses, cluster of uses or where regional synergies can be predicted and planned for. However, a single tourism zone will not deliver on the planning scheme s full potential to respond to rapid market changes, entrepreneurial projects and emerging trends. Resist the urge to pick winners for tourism development by spot zoning land in advance. Recognise that tourism is an activity that can fit almost everywhere, often alongside other land uses. Therefore, tourism needs to be facilitated across a broad range of zones and place types including urban, rural, coastal and natural places and in remote, regional and metropolitan locations. This needs to be supported by clear and robust outcome statements that make the development intention clear for different zones, places and types of tourism development envisaged. 13 Buckley Vann Town Planning Consultants

Levels of assessment and Codes Include streamlined levels of assessment for appropriate tourism uses. This means being risk tolerant and ensuring levels of assessment are consistent with the policy intent and directions in the strategic framework and zones. Where appropriate, include outcome statements and streamlined assessment levels to provide additional encouragement or incentives for sustainable tourism to make it more economically competitive. For example, outcome statements may specifically provide for taller or bulkier buildings or reduced building setbacks for tourism development in certain circumstances. Given the diverse range of tourism development, size, locations and impacts, overly prescriptive code requirements will be difficult to apply and could lead to undesirable outcomes be flexible. Finally, it is essential to recognise that planning schemes, while having an important role in enabling (or inhibiting) tourism development, cannot work alone. Land use planners must recognise the role of both top down and bottom up approaches to tourism development. Sometimes tourism development can be the result of forward planning, but more often projects will be the result of entrepreneurial zeal so expect the unexpected! Also, while existing tourism development can be identified and mapped, which is useful for the protection of tourism sites and, strategic sites and precincts may also be mapped, it is not always possible to predict where future tourism development will occur. Tourism fits almost everywhere.if appropriate to place. 14 Buckley Vann Town Planning Consultants

Acknowledgements Draft A Guideline for Queensland Planners was funded by the Queensland Department of Tourism, Major Events, Small Business and The Commonwealth Games (DTESB). The guideline was inspired by and is a sister document to Planning (Council of Mayors (SEQ) and the State Government of Queensland, 2011). Some concepts from Planning were adopted and paraphrased for use in the document. Michael McKeown and Jessica Binch, Buckley Vann Town Planning Consultants. Darren Cooper, Project Manager, Industry Development, DTESB References and further reading Australian Government (Department of Resources, Energy and Tourism) (DRET) (2012), Tourism 2020 Tourism Minister s Tourism Investment and Regulatory Reform 2012 Report Card, Australian Government: Canberra, available at, http://www.ret.gov.au/tourism/documents/nltts/working-grps/irrwg/investment-and- Regulatory-Reform-Report-Card.pdf Australian Government (Department of Resources, Energy and Tourism) (DRET) (2011a), National Tourism Planning Guide A Best Practice Approach, Australian Government: Canberra, available at, http://www.ttf.org.au/content/ntpg2.aspx Australian Government (Department of Resources, Energy and Tourism) (DRET) (2011b), National Tourism Planning Guide Regulatory Reform Priorities, Australian Government: Canberra, available at, http://www.ttf.org.au/content/ntpg3.aspx Australian Government (Department of Transport and Infrastructure) (DTI) (2011) Creating Places for People An Urban Design Protocol for Australian Cities, Australian Government: Canberra, available at http://www.urbandesign.gov.au/downloads/index.aspx Australian Government (L.E.K. Consulting) (2011), Tourism Investment and Regulation Review Final Report, Australian Government: Canberra, available at, www.ret.gov.au/tourism/documents/nltts/tourisminvestmentreportfinal.pdf Convention on Biological Diversity (2010), A Good Practice Guide on Tourism for Nature and Development, Secretariat of the Convention on Biological Diversity: Montreal, Canada, available at, http://www.cbd.int/development/training/guides/ Council of Mayors (SEQ) and Queensland Government (Department of Local Government and Planning) (DLGP) (2011), Planning: A handbook for planners, designers and developers in South East Queensland, Council of Mayors (SEQ), Brisbane. Deloitte Access Economics (2011), Queensland Tourism Industry Outlook and Potential to 2020 Department of Tourism, Major Events, Small Business and Commonwealth Games August 2012, Deloitte Access Economics: Brisbane. Dredge, D. and J. Jenkins (ed.) (2011), Stories of Practice: Tourism Policy and Planning, Ashgate Publishing Limited: Surrey. English Heritage (2013), Heritage Protection Definitions: A, English Heritage: London, available at, http://www.english-heritage.org.uk/professional/advice/hpg/hpr-definitions/a/ Gold Coast City Council (2010), Gold Coast Planning Scheme Policies Policy 18: Using the Urban Design Bonus Provisions, Gold Coast City Council: Southport, available at, http://www.goldcoast.qld.gov.au/gcplanningscheme_policies/policies_documents.html Government of New South Wales (Destination New South Wales) (2011), Maximising the Benefits of Tourism: Manual for Local Government, Government of New South Wales: Sydney, available at, http://corporate.tourism.nsw.gov.au/sites/siteid6/objlib10/attachment%20c%20- %20Tourism%20Planning%20Manual.pdf 15 Buckley Vann Town Planning Consultants

Government of South Australia (South Australian Tourism Commission) (2007), Design Guidelines for Sustainable Tourism Development, Creative Services and Tourism Policy and Planning Group South Australian Tourism Commission: Adelaide. Government of Western Australia (Western Australia Planning Commission) (WAPC) (2013), Planning Bulletin 83/2013 Planning for Tourism, Western Australia Planning Commission: Perth, available at, http://www.planning.wa.gov.au/publications/5811.asp Government of Western Australia (Tourism Western Australia) (TWA) (2012), Hotel Incentives 2012 Guidelines Crown Land, Government of Western Australia: Perth, available at, http://www.tourism.wa.gov.au/pages/search.aspx?k=hotel%20incentives%202012%20guidelines%20%e2 %80%93%20Crown%20Land&p=1 Government of Western Australia (Tourism Western Australia) (TWA) (2006a), Ecotourism vs Nature Based Tourism QuickStart Guide to a Tourism Business, Government of Western Australia: Perth, available at, www.tourism.wa.gov.au/ Government of Western Australia (Tourism Western Australia) (TWA) (2006b), Local Government B&B Policy QuickStart Guide to a Tourism Business, Government of Western Australia: Perth, available at, www.tourism.wa.gov.au/ Government of Western Australia (Tourism Western Australia) (TWA) (2006c), Strata Titled Tourist Accommodation Developments Attributes of Success, Government of Western Australia: Perth, available at, http://www.tourism.wa.gov.au/industry_resources/starting_a_tourism_business/the_tourism_part_of_the _Business/Accommodation/Pages/Successful_Accommodation_Design.aspx Government of Western Australia (Tourism Western Australia) (TWA) (2006d), Successful Tourism Design QuickStart Guide to a Tourism Business, Government of Western Australia: Perth, available at, www.tourism.wa.gov.au/ Government of Western Australia (Tourism Western Australia) (TWA) (2006e), What is a Tourist Attraction QuickStart Guide to a Tourism Business, Government of Western Australia: Perth, available at, www.tourism.wa.gov.au/ Government of Western Australia (Tourism Western Australia) (TWA) (2006f), What is Cultural Tourism QuickStart Guide to a Tourism Business, Government of Western Australia: Perth, available at, www.tourism.wa.gov.au/ Government of Western Australian (Tourism Western Australia) (TWA) (2004), Keeping It Real A Nature Based Tourism Strategy for Western Australia, Government of Western Australia: Perth, available at, http://www.tourism.wa.gov.au/industry_resources/starting_a_tourism_business/the_tourism_part_of_the _Business/Specialised_Tourism_Products/Pages/Nature_Based_and_Ecotourism.aspx Inspiring Place (2009) Consultation Draft Design Guidelines for Nature-Based Tourism, Inspiring Place. JBA Urban Planning Consultants (2010), Hotel Development in Sydney CBD Planning Study, JBA Planning Consultants: Sydney, available at, http://archive.tourism.nsw.gov.au/sites/siteid6/objlib10/hotel- Development-in-Sydney-CBD-Study-(Volume2).pdf Queensland Government (Department of Environment and Resource Management) (DERM) (2010) Queensland Nature-based Tourism Opportunities Sustainability Guidelines for Request for Proposal, Queensland Government: Brisbane. Queensland Government (Department of Infrastructure and Planning) (DIP) (2010), North West Regional Plan, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regional-planning/ Queensland Government (Department of Infrastructure and Planning (DIP) (2009a), Central West Regional Plan, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regional-planning/ Queensland Government (Department of Infrastructure and Planning) (DIP) (2009b), Far North Queensland Regional Plan 2009-2031, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regional-planning/ 16 Buckley Vann Town Planning Consultants

Queensland Government (Department of Infrastructure and Planning) (DIP) (2009c), Maranoa-Balonne Regional Plan, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regional-planning/ Queensland Government (Department of Infrastructure and Planning) (DIP) (2009d), South East Queensland Regional Plan 2009-2031, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regional-planning/ Queensland Government (Department of Infrastructure and Planning) (DIP) (2009e), South West Regional Plan, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regional-planning/ Queensland Government (Department of Local Government and Planning) (DLGP) (2011), Wide Bay Burnett Regional Plan, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/regionalplanning/ Queensland Government (Department of National Parks, Recreation, Sport and Racing, Queensland Parks and Wildlife Service) (DNPRSRQPWS) (2013), Queensland Ecotourism Plan Draft for Consultation 2013-2020, Queensland Government: Brisbane, available at, www.nprsr.qld.gov.au/tourism/pdf/ecotourism-plan- 2013.pdf Queensland Government (Department of State Development, Infrastructure and Planning) (DSDIP) (2013a), Draft State Planning Policy, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/about-planning/state-planning-policy.html Queensland Government (Department of State Development, Infrastructure and Planning) (DSDIP) (2013b), Draft State Planning Policy Guideline: Tourism Industry, Queensland Government: Brisbane, available at, http://www.dsdip.qld.gov.au/about-planning/draft-state-planning-policy-guidance-material.html Queensland Government (Department of State Development, Infrastructure and Planning) (DSDIP) (2012), Draft Tourism Interests In Land-use Planning, Queensland Government: Brisbane. Queensland Government (Department of Tourism, Major Events, Small Business and The Commonwealth Games) (DTESB) (2012a), Destination Q Blueprint 2012-2015, Queensland Government: Brisbane, available at, http://www.dtesb.qld.gov.au/tourism-industry/destinationq-blueprint Queensland Government (Department of Tourism, Major Events, Small Business and The Commonwealth Games) (DTESB) (2012b), Queensland Drive Tourism Strategy 2013-2015, Queensland Government: Brisbane, available at, http://www.dtesb.qld.gov.au/tourism-industry/queensland-drive-tourism-strategy Queensland Government (Tourism Queensland) (TQ) (2012a), Mackay Region Tourism Opportunity Plan 2012-2016, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/whitsundaysislands-and-mackay-zone/mackay/plans-and-strategies/plans-and-strategies_home.cfm Queensland Government (Tourism Queensland) (TQ) (2012b), Queensland s Outback, Gulf and Western Downs Tourism Opportunity Plan, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/outback-gulf-and-western-downs-zone/outback/plans-andstrategies/outback--gulf-and-western-downs-tourism-opportunity-plan.cfm Queensland Government (Tourism Queensland) (TQ) (2012c), The Whitsundays Tourism Opportunity Plan 2012-2016, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/whitsundaysislands-and-mackay-zone/whitsundays/plans-and-strategies/plans-and-strategies_home.cfm Queensland Government (Tourism Queensland) (TQ) (2009a), Bundaberg-Fraser Coast Tourism Opportunity Plan 2009-2019, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/sunshine-and-fraser-coast-zone/fraser-coast/plans-andstrategies/tourism-opportunity-plan/tourism-opportunity-plan_home.cfm Queensland Government (Tourism Queensland) (TQ) (2009b), Central Queensland Tourism Opportunity Plan 2009-2019, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/centralsouth-great-barrier-reef-and-bundaberg-zone/gladstone-region/plans-and-strategies/plans-andstrategies_home.cfm 17 Buckley Vann Town Planning Consultants

Queensland Government (Tourism Queensland) (TQ) (2009c), Gold Coast and Hinterland Tourism Opportunity Plan 2009-2018, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/goldcoast-and-hinterland-zone/gold-coast/plans-and-strategies/plans-and-strategies_home.cfm Queensland Government (Tourism Queensland) (TQ) (2009d), South East Queensland Country Tourism Opportunity Plan 2009-2019, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/brisbane-and-south-east-qld-country-zone/south-east-qld-country/plansand-strategies/tourism-opportunity-plan/tourism-opportunity-plan_home.cfm Queensland Government (Tourism Queensland) (TQ) (2009e), Sunshine Coast Tourism Opportunity Plan 2009-2017, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/sunshine-andfraser-coast-zone/sunshine-coast/plans-and-strategies/plans-and-strategies_home.cfm Queensland Government (Tourism Queensland) (TQ) (2009f), Townsville North Queensland Tourism Opportunity Plan 2009-2019, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/tropics-and-great-barrier-reef-zone/townsville/plans-and-strategies/plansand-strategies_home.cfm Queensland Government (Tourism Queensland) (TQ) (2009g), Tropical North Queensland Tourism Opportunity Plan 2010-2020, Queensland Government: Brisbane, available at, http://www.tq.com.au/destinations/tropics-and-great-barrier-reef-zone/tropical-north-queensland/plans-andstrategies/plans-and-strategies_home.cfm Queensland Tourism Industry Council (QTIC) (2013), Planning for the Future of Tourism in Queensland A Guide for Better Practice in, QTIC: Brisbane. School of Tourism & Hospitality Management & Centre for Tourism, Leisure & Work, Southern Cross University (2011), Scenic Rim Regional Tourism Strategy 2011-2016, Gold Coast. RPS Australia (2012), State Planning Policy Paper Tourism, RPS: Fortitude Valley. Tract Consultants (2009), Urban Design and Tourism Enriched Projects Bowen Foreshore, Bowen, QLD, Tract Consultants: Brisbane, available at, http://www.tractconsultants.com.au/upload/bowen%20foreshore%20book.pdf United Kingdom Government (Department for Communities and Local Government) (DCLG) (2006), Good Practice Guide on Planning for Tourism, United Kingdom Government: London, available at, https://www.gov.uk/government/publications/planning-for-tourism World Tourism Organisation (WTO) (1994), National and Regional, Routledge: London. 18 Buckley Vann Town Planning Consultants