Tourism planning under the RMA
Abstract
This guidance note focuses on tourism planning under the RMA and the dual role local authorities assume - enabling tourism to occur while managing its environmental effects.
In particular the note:
- identifies relevant issues concerning management of the environment, land use and tourism values
- outlines the process in developing an RMA response to tourism issues
- outlines regulatory and non-regulatory responses to these issues
- provides examples of how these responses have been applied by councils.
Further good practice guidance concerning tourism and the RMA is available on the Ministry of Tourism and Local Government New Zealand websites.
Guidance note
What is tourism?
Tourism is basically concerned with offering hospitality to visitors and is a sector from which New Zealand derives a number of benefits.
Economically it is the largest single earner of overseas currency and more than one in 10 people are in tourism related employment. Socially, tourism promotes awareness and understanding between people. Culturally, tourism protects, conserves and enhances song and dance, art and music, and heritage.
Tourism also recognises the need to protect the natural environment whether it be mountains, rivers or coastlands, snowfields or beaches, or flora and fauna. It is critical to the sustainability of tourism that all of these beneficial elements are recognised, protected and enhanced.
Challenges affecting tourism
The successful integration of the economic, environmental, social and cultural components of tourism poses a number of issues for those involved in developing an appropriate planning response. If the benefits of tourism are to be optimised (and any adverse effects minimised) the following challenges need to be addressed:
- definition
- marketing
- sustainability
- seasonability
- safety and security
- conservation
- activities and infrastructure
- employment.
Any response to these challenges should be considered within the wider strategic context that informs local government tourism planning generally.
Why is tourism an RMA issue?
Visitors are generally drawn to particular areas because of their scenic values or the natural or cultural experiences they offer. Although tourism can act as a positive catalyst to promote the values and experiences of an area, the nature and scale of visitation, and the corresponding demand that associated tourism activities place on the receiving environment, can also detrimentally affect these areas. Careful tourism planning and management is required to ensure the quality of these places is not compromised.
Although the scale of tourism activities varies from area to area, the activities themselves have the potential to affect every district and region. A district with few scenic values and a limited accommodation base may, for instance, still experience tourism impacts resulting from passing traffic or visitor pressure on public facilities (e.g., toilets and playgrounds at a convenient mid-point between two popular tourist destinations).
Currently the environmental effects of tourism activities are largely managed through district plans. However, where tourism is identified as a regionally significant resource management issue it would be advisable for regional councils to consider the inclusion of explicit objectives, policies and methods in their regional policy statement or relevant plans.
Getting started
Developing an RMA response to tourism involves:
Tourism issues should not be considered in isolation of the wider resource management issues for your district or region and require a planned and integrated response.
For further information, see Tourism and the Resource Management Act: A good practice guide (1.2 MB PDF), page 7, figure 2.2 for a diagram which illustrates how sustainable tourism outcomes can be achieved through the development of a clear vision for the future and careful integration of destination marketing and management.
Gather the information
Refer to the Tourism Planning Toolkit or useful information sources to identify a range of relevant information and organisations that can help councils with tourism planning. Also refer to the 'Work in Progress ' section for other tools that may help councils with tourism planning in future.
The tourism industry should be an active participant in tourism resource management. There should be a close linkage between the information collection and consultation stages during the plan preparation process.
Consultation
Consultation is a critical element in determining what the community likes and dislikes about a district or region 's tourism industry and any activities that may have an impact on tourism values. It is also a good way of identifying potential trends and opportunities for further tourism development in an area.
- Consultation needs to be wide and include key tourism providers and agencies.
For more information refer to the Consultation process and Consultation with Tangata Whenua guidance notes.
Identify and assess the RMA issues
The resource management issues associated with tourism are wide and varied. They can include such things as the effect large scale visitor accommodation can have on the amenity of a residential area through to the impact that degradation of natural ecosystems and landscapes can have on the visitor experience.
Broadly these issues fall into two broad categories:
- the effects of tourism on the environment
- the effects of development and use of land on tourism values.
In assessing the issues, it is important to:
- Have researched what tourism means to your district/region (e.g., what are the key environmental assets that need to be protected and enhanced and what value do they contribute to the district/region 's wellbeing?).
- Give effect to relevant matters contained in national and regional policy statements
- Have regard to conservation management strategies and plans and national park management plans prepared by the Department of Conservation.
- Consider the relationship between the RMA plan and other strategies (e.g., tourism strategy, economic development strategy, long term council community plan).
- Deal with cross boundary issues - especially to and from national parks and other land administered by the Department of Conservation, to and from adjacent districts and the interface with the coastal marine area.
- Deal with the cumulative effects on tourist resources and values.
It is also important to remember that tourism often generates effects, or is affected by decisions or activities, that extend beyond any one district or region (e.g., New Zealand tourism strategy, national park management plans, national sporting events). These effects are referred to as 'cross-boundary issues ' and are sometimes overlooked in developing a planning response.
Developing an appropriate resource management strategy and framework
There is no simple solution to managing the effects of tourism activity or maintaining or enhancing resources of value to tourism. Each council needs to develop its own response having regard to the characteristics and issues of their district or region.
In districts and regions with a reasonably substantial tourism industry these are likely to be more comprehensive than in less developed areas. Regardless of the scale of current tourism activity, careful consideration should be given to developing an appropriate response.
Key things to focus on include:
- Remember that tourism is not just about accommodation and visitor attractions. It is central to many things local government does (e.g., parks, infrastructure, transport services, community facilities, events).
- Consult specifically with the tourism industry during plan preparation.
- Explore a wide range of management approaches and methods for tourism planning (the district or regional plan may only play a minor role in the overall management of tourism in an area), but these need to be effectively integrated.
Approaches to tourism management
Some of the common ingredients that can contribute to the development of a successful tourism planning response include:
- Close integration between the tourism industry, the Department of Conservation and the council.
- A strategic planning framework that provides an umbrella to guide a variety of plans and activities.
- Plans that recognise that the RMA is not the only tool available for managing tourism (e.g., reserve management plans, main street programmes) and that statutory methods are best integrated with more pro-active non-statutory tools to be most effective.
- RMA plans with a clear policy framework that examine the economic, social and cultural well being of the district or region as well as issues impacting upon natural and physical resources.
- Plans that make a clear link between their environment and its economic value for tourism (this tends to offer more weight to justifications for action where necessary to protect resources).
- Plans that understand that tourism is more than simply visitor accommodation and facilities.
- Plans that are flexible enough to cater for emerging trends (recognising that the tourism industry is not static and can change significantly in a local area over the 10 year life of a plan).
A recent review of practice reveals that councils are currently applying a broad range of approaches. These range from high level strategies that largely lie beyond the RMA to 'effects based ' approaches where proposals are assessed on their merits without reference to a wider strategic framework.
Choosing an RMA policy framework
Once tourism issues have been identified and a general resource management strategy developed, there are a variety of ways these can be integrated into RMA plans. There is no single solution, but councils need to undertake an evaluation of the various approaches and different policy frameworks before determining which approach to use. Refer to tips for good practice in choosing a policy framework.
Current plans generally rely on one of the following three approaches:
Separate section/chapter with tourism issues/objectives/policies
Plans can contain a separate section with specific objectives and policies relating to tourism issues. This section should outline the preferred methods to implement the policies and these may or may not include 'rules '.
- This is a useful approach for areas that have high tourism value or where significant or extensive tourism activities exist, but could stifle the establishment of innovative, new tourism related activities if provisions are too narrowly prescribed.
- Plans could become overly long and complex if applied to every industry sector in the district/region.
Refer to the Rotorua District Plan best practice example.
Reference to tourism throughout the plan
Plans can contain issues, objectives or policies and methods relating to tourism throughout different sections of the plan. The Southland District Plan, for instance, includes the impact of growth in tourist numbers on transportation links and facilities as an issue in the transportation section.
- Reminds plan users that tourism contributes to a range of things that happen in a district or region and cannot be easily 'ring fenced '.
- May not provide an integrated response to issues in areas with a complex, well-developed tourism sector or those experiencing rapid tourism growth.
Generic objectives, policies and methods
Plans may have no specific objectives or policies that refer to tourism. Tourism may be mentioned in the 'explanation ' of an issue, objective or policy as one of the reasons why it is being addressed in the plan.
- This approach does not attempt to 'pick winners ' and recognises the diversity of an area and/or its economy.
- Better suited to councils that have adopted a more effects-based approach to developing their plans, but may present some interpretive challenges.
- Provides a more flexible basis to address emerging tourism trends.
- May be too general and lack a clear sense of 'local context ' or strategic direction for managing key issues.
Refer to the Westland District Plan best practice example.
Methods for managing tourism
Most policy directions will require specific implementation methods to be effective. Although not exhaustive, this section illustrates a range of tools that could be applied to local circumstances. These can generally be categorised into:
- regulatory methods for managing the effects of tourism activity or development
- regulatory methods for managing resources that have value for tourism
- non-regulatory methods.
Councils need to consider how best to provide clear links between regulatory methods set out in plans and non-regulatory and strategic planning initiatives documented elsewhere. Where alternative methods are used it is important that they fit with and support plan provisions.
Managing tourism activity or development
Tourism zones/policy units
Councils can use 'specific zones ' as a method of managing tourism activities in particular locations in the district or region.
Refer to the Rotorua District Plan best practice example.
Zoning to encourage the location of tourism related activities in certain areas
Some plans use standard zones, (e.g., rural, coastal, residential) but have additional provisions within these general zone statements to indicate particular areas where tourism activities exist or are to be encouraged to locate. The Thames Coromandel District Plan, for example, provides for non-residential activities such as tourist accommodation in its coastal village Policy areas.
Also refer to the best practice example in the Rodney District Plan.
Structure plans
Structure Plans can be developed to ensure special or particular environmental features and issues are addressed when subdivision and development is proposed for a particular area or locality (e.g.. infrastructure, eco-tourism).
Refer to the Whangarei Coastal Management Strategy best practice example.
Rules for tourism activities
Plans can include a wide array of rules to control the location, design and development of tourism activities. The status of these activities can be determined through 'activity lists ', compliance with performance standards or a combination of both. Specific assessment criteria can also be provided to help assess the impact tourism activities might have on the environment.
General rules and standards to manage the effects of all activities
Many plans treat tourism activities the same as any other commercial, residential or outdoor recreation activity. In developing or reviewing plan provisions relating to tourism, councils should consider whether reliance on general rules adequately addresses any specific effects identified or whether additional rules are required.
Managing resources that have value for tourism
Protecting and enhancing urban design through the use of precinct/character areas
The identification of precincts/character areas to protect and enhance the urban design or heritage characteristics of an area can help ensure tourist values are maintained or enhanced.
Refer to the Wellington District Plan best practice example.
Controls on built form
As buildings can be a focal point that adds to the visitor experience a number of plans treat construction of new buildings as a controlled activity with applications assessed against specific design criteria.
Refer to the McKenzie District Plan Village Centre Zone best practice example.
Rules and assessment criteria to protect natural character, landscapes and the coastal environment
Many councils have defined significant and outstanding landscapes and natural character areas in their plan as well as areas of the coastal environment that require specific protection. These areas often function as 'overlays ' and have specific rules and assessment criteria that apply over and above any general rules for the area.
Refer to the Southland District Plan best practice example.
Laybys and viewpoints protected along scenic routes
Rules can be used to manage the effects on amenity values of inappropriate development along state highways or scenic routes.
Refer to the Ruapehu District Plan best practice example.
Heritage protection
Many plans contain rules that prevent or place conditions on the destruction or alteration of heritage resources. This can have the effect of protecting both the heritage and associated tourism values of these resources.
Refer to the Napier District Plan best practice example for rules applying to signage on Art Deco heritage buildings.
Non-regulatory methods
- Strategic planning initiatives including tourism strategies
- Education/advocacy/awareness raising
- Council funding and/or works
- Bylaws
- Covenants on titles
- Reserve management plans
- Esplanade reserve strategy
- Land acquisition
- Incentives
- Partnerships with communities and other organisations.
Best practice examples
Policy framework: Rotorua District Plan
This plan has a separate section that outlines the tourism issues and associated objectives, policies and methods of implementation. The separate section generally works well, particularly in managing the effects of accommodation.
Refer to Part Six - Tourism of the Rotorua District Plan (PDF 200 KB).
Policy framework: Westland District Plan
Although the policy framework for the coastal environment does not include any specific objectives relating to tourism it identifies a range of tourism related issues that impinge on the coastal environment.
Refer to Section 3.12 The Coastal Environment of the Westland District Plan.
Regulatory methods for managing tourism activity or development - zones/policy units: Rotorua District Plan
To encourage the development of a tourist resort atmosphere the plan includes four resort zones that cater specifically for a wide range of tourism activities. The merits of this approach include:
- clear identification of a vision/strategy for enhancing tourism areas
- clear indication of how non-regulatory methods will be used.
Refer to Part Six - Tourism of the Rotorua District Plan (PDF 200 KB).
Methods for managing tourism activity zones: Rodney District Plan
The Plan includes a number of special zones including the 'Waiwera Tourism and Entertainment Zone '. The zone recognises the importance of Waiwera as a regional tourism attraction and the particular environmental issues that its use and development create.
Refer to 12.8.9 Special 9 Waiwera Tourism and Entertainment Zone of the Rodney District Plan (PDF 36 KB).
Methods for managing resources that have value to tourism - precinct/character areas: Wellington District Plan
The Plan recognises that the location, design and external appearance of buildings in the central area has a significant impact on the quality of the public environment and on the quality of the visitor experience. To address this, specific character areas have been identified and associated design guides prepared to help with the processing consents.
Refer to Chapter 12 Central Area in Volume 1 (PDF 100 KB) and the Design Guides for Courtenay Character Area and the Cuba Character Area in Volume 2 of the Wellington District Plan.
Rules to protect natural character, landscapes and the coastal environment: Southland District Plan Rural Resource Area Rules
The Rural Resource Area is a good example of the use of rules to minimise the visual impact of buildings on rural amenity. The aesthetic characteristics of the Rural Resource Area are recognised as an important contributor to the local tourism industry.
Assessment criteria to control built form: McKenzie District Plan
Lake Tekapo Village is identified in the Plan as a focal point for visitors. To ensure buildings are appropriately integrated into the local environment, buildings are treated as a controlled activity and assessed against specific design criteria (Lake Tekapo Development Plan - high country homestead style with verandahs).
Refer to Policy 2D and Rule 1.4 in Section 5 - Business of the MacKenzie District Plan (PDF 290 KB).
Assessment criteria to protect natural character, landscapes and the coastal environment: Marlborough Sounds Resource Management Plan Port Zone
The foreshore area, including the port of Picton, forms a gateway to the Picton town centre and contributes to the town 's attractiveness as a tourist destination.
The methods in the Plan include rules that require development proposals within the port area to be assessed in terms of their impact on landscape values and integration with the adjacent town centre.
Refer to Section 10.6 - Port and Harbour Activities (pg. 10-26) (PDF 140 KB) and Section 33.0 Port Zone - 33.4.1 General Assessment Criteria (PDF 200 KB) of the Marlborough Sounds Resource Management Plan.
Methods for managing resources that have value to tourism - lay-bys and viewpoints along scenic routes Ruapehu District Plan
The Plan contains a rule controlling non-rural development within 1 kilometre of State Highway 47. The rule is intended to protect the landscape and scenic qualities associated with such areas as the Tongariro National Park.
Refer to Rule RU 4.5(8) in the Rural Section of the Ruapehu District Plan PDF 1.2 MB).
Methods for managing resources that have value to tourism - heritage protection: Napier District Plan
The Plan contains rules that limit the height of buildings and the type of signage permitted in the city 's Art Deco Quarter Zone. This is a good example of the use of rules, in conjunction with complementary non-regulatory methods, to protect and promote the tourism and heritage values associated with the City 's art deco resource.
Refer to Chapter 14 - Commercial Environments (PDF 68 KB), Issue 14.1.5, Objective 14.5 and Policies 14.5.1 - 14.5.8; and Chapter 59 - Art Deco Quarter Signs (PDF 85 KB).
Other methods
Tourism strategies: Thames Coromandel Tourism Strategy (PDF 370 KB)
This Strategy illustrates the role strategic planning documents can play in managing the effects of tourism on the environment. Clear linkages are shown between the District Plan and the recommendations and actions in the Tourism Strategy.
This is a good example of a long-term strategic planning document that provides a clear message to the tourism industry as to the type and location of tourism activities favoured by the local community. It is designed to sit alongside the district plan and to be considered in council decision-making processes.
Strategic planning initiatives: Whangarei District Council (PDF 730 KB)
Twelve structure plans were prepared for priority areas in the coastal environment as part of the Whangarei Coastal Management Strategy. The structure plans comprise a broad physical plan identifying areas of growth, protection, parks and other infrastructure and community requirements over the next 20 years.
Education/advocacy/awareness raising: Napier District Plan (PDF 65 KB)
This Plan provides a good example of how several different non-regulatory methods can be used in combination with rules to protect heritage buildings.
Bylaws: Southland District Council
This example illustrates how freedom camping can be managed through a bylaw.
Green Globe Certification: Kaikoura District Council
This is a good example of an initiative which is directed towards the development and promotion of environmentally sustainable tourism in the district.
RMA provisions
- Section 5 - Purpose
- Sections 6-8 - Matters of national importance, Other matters, Treaty of Waitangi
Case law
Useful cases concerning consent applications for tourism related activities include:
- Kemp v Queenstown Lakes District Council, A130/2003
This was an appeal against the refusal of consent for a commercial kayaking/inflatable canoe operation on the Dart River. The Court considered that an additional 15 kayaks for one trip per day would have an adverse cumulative effect on the safety of river users. - Kalkman v Thames-Coromandel District Council, A152/2002
This was an appeal against the granting of consent for a non-complying activity to construct a 5-unit travellers ' accommodation complex at Papaaroha. The Court concluded that the cumulative effect on the development, combined with other earthworks, buildings and activities at Papaaroha was inconsistent with the preservation of the coastal environment and was inappropriate in terms of s6(a) of the RMA. - Corboy v Banks Peninsula District Council, C147/2002
This decision related to references on the proposed district plan concerning the appropriate height for buildings in the Town Centre Zone of Akaroa. The Court concluded that two-storey buildings were more sympathetic with the existing township and that the greater intensity of 3-storey buildings would compromise the streetscape and heritage values of Akaroa. The Court considered that the benefits of retaining the heritage value (including economic benefits for tourism) significantly outweighed any economic effect on landowners. - Wakatipu Environmental Society Inc v Queenstown Lakes District Council, C135/97
This was an appeal against the granting of consents to establish a commercial vineyard with an associated winery, restaurant, tourist accommodation and residential dwellings. Consent was granted to construct the dwellings and restaurant due to their positive and minor effects. However, the tourist accommodation was considered to be out of scale with the landscape and was refused consent. - Back Country Skiers Alliance Inc v Central Otago District Council, C82/99
This appeal related to consents to establish and operate a snowmobiling, ski touring and sightseeing operation. The Court considered both the positive and negative effects of the operation. The positive effects included being able to fly more people in and provide more services for them. The adverse effects included noise from planes, helicopters, snowmobiles and snowcats.
The Court confirmed the granting of the consent but deleted conditions imposed by the Council restricting the use of snowmobiles and snowcats in a certain areas. They set out new conditions relating to required snow depth.
Related guidance notes
The following guidance notes are related:
Work in progress
Regional Tourism Organisation of New Zealand (RTONZ)
Tourism strategy implementation projects These projects have been initiated by RTONZ to address the series of recommendations contained in the New Zealand Tourism Strategy 2010. They form part of the organisation 's ongoing response to the strategy and range from an examination of the roles of tourism organisations in New Zealand to reviewing the research and monitoring needs of regional tourism organisations.
Tourism flows model
The Ministry of Tourism is leading the development of a model to represent current tourist flows and forecast future flows of tourists around New Zealand. The model will be a valuable information source for planners. Taking data from the core tourism data set and other relevant data sets including Transit New Zealand 's vehicle count data and the Department of Conservation 's visitation data, the model will build a picture of tourist flows on land and air routes. An understanding of tourist flows and distributions will help to inform investment and management decisions and alert planners in both local and central government to trends and potential capacity constraints before they occur.
Sustainable tourism charters
The Ministry of Tourism and Ministry for the Environment are leading work to develop and implement sustainable tourism charters in six regions over a four year period. Charter groups will represent clusters of business that will adopt environmentally sustainable business practices such as energy efficiencies, waste minimisation, and improved community engagement.
Visitor impact monitoring toolkit
This project aims to provide conservation staff with easy to use, practical tools for monitoring a range of visitor and concession related impacts. Tourism concessionaires, marine mammal tourism operators and a range of other environmental managers will also benefit from being able to use these tools. The toolkit allows managers to monitor and understand the effects of visitors on New Zealand 's natural, cultural and recreation values. This will help to develop appropriate management solutions and interventions where monitoring indicates that effects from activities are not sustainable.
Tourism demand subsidy scheme
$11 million in funding is available through the Tourism Demand Subsidy Scheme (TDSS). The scheme offers a contestable source of funding to help small communities with high tourism flows to invest in the water and sewerage infrastructure they need to meet visitor demand. The component of capital costs directly attributable to tourism demand will be eligible for a subsidy of between 50-90%.
Integrated development of natural areas for tourism-related activities
The Foundation for Research, Science and Technology are funding a research programme directed towards finding ways to achieve more sustainable tourism. This includes managing the sometimes competing requirements of tourism and recreation activities, social, cultural and amenity values and natural area conservation, while encouraging business activity.
The objectives of the programme are to:
- evaluate existing approaches to planning and managing tourism related activities in natural areas
- define an integrated model for application in multi-stakeholder management contexts
- pilot, evaluate and refine the model.
Waste Management in Tourism Areas Working Group
This initiative is led by the Ministry for Environment and includes representatives from Transit, Department of Conservation, Ministry of Tourism, Ministry for the Environment, Rental Vehicle Association/Bus and Coach Association, Tourism Industry Association New Zealand, Local Government New Zealand, Holiday Parks of New Zealand, and New Zealand Motor Caravan Association. The Working Group will assess whether:
- dump stations, public toilets, recycling facilities and rubbish facilities and services are coping with increased tourism demand
- facilities are of an appropriate quality and located to meet demand
- visitors are aware of their availability (also refer to the Ministry for the Environment publication Finding a Dump Station in New Zealand).
The Working Group will also consider ways to educate visitors, operators and locals about best practice in waste and litter management.
Relevant publications
Tourism Planning Toolkit for Local Government (2.3 MB PDF)
Published by Tourism Recreation Research and Education Centre - January 2006
The Tourism Planning Toolkit is designed for use by local authorities and Regional Tourism Organisation (RTO) staff responsible for destination management. The Toolkit is web-based and provides access to a set of tools to help tackle specific tourism-related issues (eg. data collection) and to develop a tourism strategy.
Recommended Good Practice for Governance of Regional Tourism Organisations (549 KB PDF)
Published by Catalyst Management Services Ltd - February 2004
Planning for tourism under the RMA is an important part of destination management. This guide focuses on the integration of destination marketing and management to achieve more sustainable tourism growth.
Effects of Tourism Demand on Water and Sewerage Infrastructure in Four Local Authorities
Published by Market Economics Ltd - September 2003
This study identifies how tourism demand might impact on the funding of water and sewerage infrastructure in high tourism flow areas by concentrating on four case study areas: Rotorua, Kaikoura, Queenstown and Stewart Island.
Management of the Environmental Effects Associated with the Tourism Sector
Published by Parliamentary Commissioner for the Environment - November 1997
Tourism is critical to New Zealand's economy and depends to a large extent on environmental qualities. This report highlights the wide range of environmental effects and management problems associated with the industry and makes key recommendations for achieving sustainable tourism.
The Community Guide to Landscape Protection under the Resource Management Act 1991
Published by Environmental Defence Society - November 2005
This Guide provides practical information for people who wish to obtain better protection for New Zealand's landscapes.
The Community Guide to Coastal Development under the Resource Management Act 1991
Published by Environmental Defence Society - November 2005
This Guide provides helpful and practical information for people who wish to promote high quality development on New Zealand's coasts.
Landscape Planning Guide for Peri-Urban and Rural Areas
Published by Environmental Defence Society - March 2005
This guide contains introductory material on landscape management, including statutory requirements and landscape planning categories, and in-depth information on landscape planning under the RMA.
Current challenges in practice
The place of RMA planning in the wider scope of destination management
One of the challenges identified in the New Zealand Tourism Strategy 2010 is to integrate destination marketing and destination management. RMA practitioners are seen as an important part of a 'whole of council ' and multi-agency team approach required to achieve effective destination management. There are challenges for councils in achieving the partnering and consultation levels required for this. Gaining agreement and putting in place the necessary intra/inter-council and inter-agency working parties necessary for implementation will take effort.
Monitoring/state of the environment and carrying capacity
A key tourism issue is the lack of data on the effects of tourism on the environment. There is a general consensus amongst practitioners that a significant amount of data and monitoring information needs to be collected at the local/district level. The resource requirements involved in achieving this will require councils to be innovative in forming partnerships and seeking alternative funding sources.
A number of councils are starting to consider the concept of 'carrying capacity ' of the natural and physical resources in their district or region. The difficult question is, "When is another visitor too much?" Where resource limits have been identified, planners are facing the challenge of how to resolve the conflict between the interests of commercial tourism operators and local residents (eg, use of a river by local recreational groups vs. commercial tourism boat operators).
Specifically addressing tourism in RMA plans
The extent to which tourism should be specifically provided for in RMA plans is still an issue for a number of councils. Some practitioners consider that tourism should not be singled out in the policy framework and advocate a strictly effects-based approach, while others question the relevance of explicit references in RMA plans where alternative guidance can effectively be provided outside these plans (eg, through a non-statutory strategy).
Tourism strategies
Successful tourism planning is likely to involve a combination of approaches under an umbrella vision or strategy and includes both non-statutory and statutory approaches. There are currently only a limited number of best practice examples that illustrate the clear integration of tourism strategies with RMA plans and other council planning documents.
Acknowledgements and editorial comments
This guidance note is based on an earlier guidance document prepared for Local Government New Zealand by Catherine Richards, Beca Carter Hollings and Ferner. This earlier material was further developed and shaped by Greg Vossler and Gina Sweetman, Ministry for the Environment and reviewed by Katherine Lowe, Ministry of Tourism. The Ministry for the Environment would like to thank the following people for their input into the preparation of this guidance note:
Jan Crawford, Planning Consultants Ltd.
Robert Schofield, Boffa Miskell Ltd.
Robert Schlotjes, formerly Rotorua District Council
Rodney Davies, PARANZ
David Barnes, formerly Tourism Industry Association New Zealand
This guidance note was prepared in May 2006.
