Local Planning Strategy for Tourism - Adopted May 09 and Building/Local_Planning... · • Map 2.1 (5 A’s) ... 2.3 Analysis of the 5 A’s of Tourism in Bunbury ... Local Planning

Local Planning Strategy for Tourism

Local Planning Strategy

for

Tourism

May 2009


City of Bunbury ii

Foreword: Disclaimer: This Local Planning Strategy for Tourism was prepared by the City of Bunbury. It is produced for information purposes only. Information pertaining to this document may be subject to change and should be checked against any amendments subsequent to publication. The City of Bunbury shall not be liable for any loss or damages howsoever caused as a result of reliance upon information contained on this text. Copyright City of Bunbury 2009 Acknowledgements: The City acknowledges the grant funding support provided by the South West Development Commission in preparation of the LPS for Tourism.

Forward

The Local Planning Strategy for Tourism has been prepared as part of an integrated approach to managing the Citys built and natural environments and is aligned with the goals and objectives of the Bunbury City Vision Strategy. The Strategy is directed towards representatives of Council, landowners, developers and industry and the local community at large.

The City of Bunbury LPS for Tourism (Final Draft) was adopted by Council on 19th May 2009.

Copies of the document can be downloaded via the Citys website: www.bunbury.wa.gov.au. Further information regarding the Strategy can be obtained from the City on request.

All written correspondence should be addressed to:

Chief Executive Officer

PO Box 21

Bunbury WA 6231

Alternatively, enquiries can be emailed to:

[email protected]


City of Bunbury iii

Production Details

Edition Details:

Title: City of Bunbury Local Planning Strategy for Tourism

Production Date: May 2009

Prepared By: Strategic & Environmental Planning

Author: Kelvin D Storey

Editor: Thor Farnworth

Review Status: Adopted Version

Copy Number: -

Project Name: LPS Tourism

Project No.: -

Amendments List:

Version Date Amendments Prepared by

Prelim Draft

Feb 2008 - KDS

First Draft Ver 1

April 2008

Inclusion of selected visitor tables from TWAs LGA Factsheet 2006

Definition Strategic Tourism Site scope amended

Inclusion of map showing indicative Building Heights along Ocean Drive

Revisions to text and terminology

KDS

First Draft Ver 2

August 2008

Up dated visitor tables from TWAs using LGA Factsheet 2007

Extended commentary regarding Caravan & Camping Sites

Re- formatting & minor changes to document text

KDS

First Draft Ver 3

October 2008

Revised text in relation to non strategic tourism sites

Part 6 revised a further reference to Strategic Components removed

Summary of Recommendations included

Re-formatting

KDS


City of Bunbury iv

Revised First Draft

January 2009

Map 2.1 (5 As) additional detail added

Listing of accommodation sites up-dated

Revision of accommodation site designations

Definitions updated (Draft Strategy Component 1)

Minor corrections to text throughout document

KDS

Final Draft March/April

2009

Formatting changes and editing of grammar and punctuation; minor modifications to text, figures and tables

KDS / TF

Adopted Version

May 2009 Forward up-dated

References to Draft removed

KDS


City of Bunbury v

Contents

Foreword: ......................................................................................................................ii

Document Structure.............................................................................................. ix

Preface.................................................................................................................... x

Meaning of Terms ................................................................................................. xi

Summary of Proposed Action ............................................................................. xii

Part 1 Introduction ............................................................................................................ 1

1.1 Purpose .......................................................................................................... 1

1.2 Aim ................................................................................................................. 1

1.3 Objectives ....................................................................................................... 1

1.4 Background..................................................................................................... 1

1.5 What is Tourism? ............................................................................................ 2

1.5.1 Tourism Defined ......................................................................................... 2

1.5.2 Why is Tourism Important?......................................................................... 3

1.5.3 Planning for Tourism .................................................................................. 3

1.6 Need for a Strategic Approach ........................................................................ 4

1.7 City Vision for Tourism .................................................................................... 4

1.7.1 Vision Statement ........................................................................................ 4

1.7.2 Alignment with Goals, Objectives & Strategies ........................................... 4

1.8 Relationship to other Local Planning Strategies .............................................. 5

1.9 Relationship to other City Strategies ............................................................... 6

1.10 Scope.............................................................................................................. 7

1.11 Methodology ................................................................................................... 9

1.11.1 Analysis...................................................................................................... 9

1.11.2 Principles & Philosophy .............................................................................. 9

1.11.3 Inception..................................................................................................... 9

1.12 Preparation & Consultation ........................................................................... 10

1.12.1 Consultation To-date ................................................................................ 10

Part 2 Context & Analysis .............................................................................................. 12

2.1 Government Tourism Organisations and Structure........................................ 12

2.2 The Legislative & Planning Policy Framework............................................... 14

2.2.1 Federal Government................................................................................. 14

2.2.2 State Government .................................................................................... 14

2.2.3 Local Government .................................................................................... 16

2.2.4 City of Bunbury......................................................................................... 16

2.3 Analysis of the 5 As of Tourism in Bunbury .................................................. 20

2.3.1 Accommodation........................................................................................ 20

2.3.2 Access...................................................................................................... 30

2.3.3 Attractions ................................................................................................ 32

2.3.4 Activities ................................................................................................... 34

2.3.5 Amenities ................................................................................................. 36

2.4 Tourism Location Development..................................................................... 38


City of Bunbury vi

2.4.1 Destination Nodes / Areas of Visitor Interest............................................. 38

2.4.2 Coastal Zone ............................................................................................ 38

2.5 Conclusions and Assumptions Guiding Strategy Development ..................... 43

Part 3 Strategy Approaches ........................................................................................... 44

3.1 Strategy Imperatives ..................................................................................... 44

3.2 A Revised Local Planning Policy Framework ................................................ 44

3.2.1 Strategy Components............................................................................... 44

3.2.2 Local Planning Strategy............................................................................ 44

3.2.3 Local Planning Scheme............................................................................ 46

3.2.4 Local Planning Policies............................................................................. 46

3.3 Guiding Spatial Framework ........................................................................... 47

3.3.1 Spatial Planning Components................................................................... 47

3.3.2 Core Tourism Area (CTA)......................................................................... 48

3.3.3 Strategic Tourism Corridors (Gateways & Access Routes) ....................... 49

3.3.4 Strategic Tourism Locations (STLs).......................................................... 51

3.3.5 Strategic Sites & Places ........................................................................... 53

3.4 Measures Dedicated to the Provision, Retention and Control of Short-Stay Tourist Accommodation ........................................................................ 56

3.4.1 Acknowledging the Significance of Tourist Accommodation Facilities....... 56

3.4.2 Designation of Strategic Tourism Sites ..................................................... 56

3.4.3 Designation of Non-Strategic Tourism Sites ............................................. 57

3.4.4 Designation of Valued Tourism Sites ........................................................ 58

3.4.5 Designation of Recognised Tourism Sites ................................................ 59

3.4.6 Evaluation of Short-Stay Tourist Accommodation Sites ............................ 59

3.5 Towards an Integrated & Proactive Management Structure: Co-ordinating Activity within the Strategic Tourism Locations.............................................. 62

3.5.1 Strategic Tourism Locations within the CBD Local Area ........................... 62

3.5.2 STLs within the Ocean Precinct Local Area Plan ..................................... 88

3.5.3 STLs within the East Bunbury Local Area Plan......................................... 98

3.5.4 STLs within the Outer Business District .................................................. 102

3.5.5 Tourism Related Uses within each STL Consolidated Summary ......... 105

Part 4 Implementation................................................................................................... 108

4.1 Corporate Activity and Responsibility .......................................................... 108

4.1.1 Principle Corporate Plans ....................................................................... 108

4.1.2 Operational Programming....................................................................... 108

4.2 Development Services Management of the Local Planning Policy Framework.................................................................................................. 111

4.2.1 Cycles of Scheme Revision and Review................................................. 111

4.2.2 Programming & Prioritisation .................................................................. 111

4.2.3 Scope of Recommended Scheme Amendments..................................... 111

4.2.4 Local Planning Policies........................................................................... 119

4.2.5 Schedule of Implementation ................................................................... 120

4.3 Spatial Planning Components ..................................................................... 120

4.3.1 CTA / STL Development......................................................................... 120

4.3.2 Strategic Tourism Places Development .................................................. 120


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4.4 Special Projects .......................................................................................... 123

4.4.1 Caravan and Camping Grounds ............................................................. 123

4.4.2 Bunbury Coastal Plan............................................................................. 123

Part 5 Monitoring & Review.......................................................................................... 124

5.1 Continuous Review and Improvement......................................................... 124

5.2 Measuring Progress KPIs........................................................................ 124

5.3 Formal Review of Local Planning Processes............................................... 126

5.3.1 Local Planning Policy Framework........................................................... 126

5.3.2 Local Planning Strategy.......................................................................... 126

5.3.3 Local Planning Scheme.......................................................................... 126

5.3.4 Local Planning Policies........................................................................... 126

Part 6 Strategy Components ....................................................................................... 127

6.1 Component Development............................................................................ 127

Glossary.............................................................................................................. 128

References.......................................................................................................... 129

List of Tables Table 1.1 Visitors to Bunbury 2002-2006. ....................................................................... 2 Table 2.1 City of Bunbury and Tourism Related Functions. .......................................... 17 Table 2.2 Tourism and the Current Local Planning & Policy Framework....................... 20 Table 2.3 Regional Overview of Short-Stay Provision. .................................................. 21 Table 2.4 Overnight Accommodation in Bunbury. ......................................................... 22 Table 2.5 Perceived Importance by Bed-Space. ........................................................... 26 Table 2.6 Tourist Accommodation Sites........................................................................ 29 Table 2.7 Summary of Destination Nodes, Noted Attractions / Places of Visitor

Interest, Key Amenities and Access Infrastructure. ....................................... 39 Table 2.8 Identified Destination Nodes / Areas of Visitor Interest. ................................. 40 Table 3.1 Integrating Tourism within a Revised Local Policy Planning Framework. ...... 47 Table 3.2 Noted Attractions and Visitor Places ............................................................. 55 Table 3.3 Short-Stay Accommodation Sites and Strategic Significance. ....................... 61 Table 3.4 Central STL - Strategic Directions, Influences & Actions ............................... 63 Table 3.5 Tourism Related Uses within the Central STL. .............................................. 65 Table 3.6 Tourism Related Uses within the Central STL Entertainment & Leisure

Sub-Precinct. ................................................................................................ 65 Table 3.7 Outer Harbour STL - Strategic Directions, Influences & Actions.................... 68 Table 3.8 Tourism related Uses within the Outer Harbour STL. .................................... 69 Table 3.9 Marlston Waterfront STL - Strategic Directions, Influences& Actions ............ 72 Table 3.10 Tourism Related Uses within the Marlston Waterfront STL. .......................... 74 Table 3.11 Koombana STL - Strategic Directions, Influences & Actions ......................... 76 Table 3.12 Tourism Related Uses within Koombana STL. .............................................. 77 Table 3.13 Inlet North STL - Strategic Directions, Influences & Actions .......................... 81 Table 3.14 Tourism Related Uses within Inlet North STL. ............................................... 82 Table 3.15 Runners Oval STL - Strategic Directions, Influences & Actions ..................... 84 Table 3.16 Tourism related Uses within the Runners Oval STL. ..................................... 86 Table 3.17 Ocean Drive STL - Strategic Directions, Influences & Actions ....................... 89 Table 3.18 Tourism Related Uses within the Ocean Drive STL....................................... 91 Table 3.19 Punchbowl Big Swamp STL - Strategic Directions, Influences & Actions ...... 95 Table 3.20 Tourism related Uses within Punchbowl - Big Swamp STL ........................... 96 Table 3.21 Inlet South STL - Strategic Directions, Influences & Actions.......................... 99


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Table 3.22 Tourism Related Uses within Inlet South STL ............................................. 100 Table 3.23 Spencer STL - Strategic Directions, Influences & Actions............................ 102 Table 3.24 Uses within Spencer STL ............................................................................ 103 Table 3.25 Short-Stay Accommodation Preferences by STL - Summary Table ............ 105 Table 3.26 STL Preferences by Short-Stay Accommodation Summary Table............ 106 Table 3.27 Activities /Amenities uses by Precinct Area - Summary Table..................... 107 Table 4.1 LPS for Tourism - Operational Programme ................................................. 110 Table 4.2 Scope of Required Change to General Terms and Definitions .................... 112 Table 4.3 Scope of Required Change to Use Class Definitions................................... 112 Table 4.4 Scope of Required Change to TPS Zoning ................................................. 114 Table 4.5 Range of Discretionary Tourism Uses within TPS7 Zoning Table .............. 114 Table 4.6 Scope of Suggested Change to Special Use Zones .................................... 116 Table 4.7 Scope of Required Change to Existing Local Planning Policies .................. 119 Table 4.8 Scope of Potential New Local Planning Policies (for tourism) .................... 119 Table 4.9 Schedule - Summary Table......................................................................... 120 Table 4.10 CTA / STL Development. ............................................................................ 121 Table 5.1: KPIs and use within the LPS for Tourism. ................................................... 125 List of Figures Figure 1.1 Linkages to the rest of the Local Planning Policy Framework.......................... 6 Figure 1.2 Aligning tourism with the delivery of Local Government activities (projects,

programs and services)................................................................................... 7 Figure 1.3 The five As of tourism and their interrelationships. ....................................... 7 Figure 1.4 Diagram of the Pressure State Response model. .................................... 9 Figure 1.5 Stages and milestones in progressing the Local Planning Strategy for

Tourism......................................................................................................... 11 Figure 2.1 Tourism Industry Structure. ........................................................................... 13 Figure 2.2 State Planning Framework and Tourism ....................................................... 15 Figure 2.3 Estimated Numbers of Overnight Visitors to Bunbury 2005/06. ..................... 20 Figure 3.1 Strategy Components. .................................................................................. 45 Figure 3.2 Intended Local Planning Policy Framework as it relates to Tourism. ............. 46 Figure 3.3 Spatial Planning Components and Tourism. ................................................. 48 Figure 3.4 Designating Criteria - Tourist Accommodation Sites...................................... 60 Figure 3.5 Tourism and Future Building Heights: Ocean Drive/Back Beach STL............ 93 Figure 4.1: Process for implementation and review of the Strategy. .............................. 109 Figure 4.2 Interface between Permanent and Short-Stay Use Classes and Terms ...... 113 Figure 5.1: On-going cyclic nature of the planning process. .......................................... 124 Figure 5.2: Key Performance Outcomes. ...................................................................... 126 List of Maps Map 2.1 Tourism Accommodation, Access, Attractions, Activities & Amenities in

Bunbury ........................................................................................................ 23 Map 3.1 Spatial Representation of Planning Components for Tourism ....................... 50 Map 3.2 Strategic Tourism Locations.......................................................................... 52 Map 3.3 Central STL................................................................................................... 67 Map 3.4 Outer Harbour STL........................................................................................ 71 Map 3.5 Marlston Waterfront STL ............................................................................... 75 Map 3.6 Koombana STL ............................................................................................. 79 Map 3.7 Inlet North STL.............................................................................................. 83 Map 3.8 Runners Oval STL......................................................................................... 87 Map 3.9 Ocean Drive STL. ......................................................................................... 92 Map 3.10 Punchbowl Big Swamp STL ....................................................................... 97 Map 3.11 Inlet South................................................................................................... 101 Map 3.12 Spencer STL............................................................................................... 104


City of Bunbury ix

Document Structure The structure of the document is set out below.

Part 1 identifies Purpose, Aim, Objectives and Scope of the Strategy. This part sets the scene by defining what tourism means, particularly within the local context and why it is important to Bunbury. It states what the City Vision Strategy seeks to achieve for Tourism, and how this Strategy aligns the City Vision goals and objectives with the Local Planning Policy Framework.

Part 2 provides a profile and environmental scan of Bunburys Tourism values, and identifies the core matters and features in context of legislation, policy, practices and benchmarks. Identifies the Shortfalls, Pressures and Opportunities associated with the five As of tourism in Bunbury.

Part 3 identifies imperatives in-line with the purpose, aim and objectives, requiring revisions to the Local Planning Policy Framework; introduction of Guiding Spatial Components; measures dedicated to provision, retention and control of Short-Stay Accommodation; and local area planning considerations.

Part 4 outlines the main processes by which the strategy components will be implemented and the extent of change required to the Local Planning Policy Framework. Implementation will occur as part of the normal planning cycle and in response to industry initiatives.

Part 5 provides a summary of the scope of measures required to be put in place and the planning processes to be relied upon to allow for the on-going monitoring and review of the strategy and its statutory components.

Part 6 identifies various Strategy Components that will flow on (as key future tasks) following the adoption of the LPS for Tourism, and once prepared will seek to be separately adopted through formal statutory channels and processes.

Strategy Approaches

Introduction

Context & Analysis

Implementation

Monitoring & Review

Strategy Components


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Preface Bunbury is striving to strengthen its reputation as a tourist destination in its own right, and within the City there is a growing appreciation of the need to constantly improve on the Citys tourism assets and values, including those mechanisms dedicated to facilitating their development and management. The primary purpose of the City of Bunbury Local Planning Strategy for Tourism is to provide a clear and robust spatial planning framework for tourism that will guide growth and inform developers, investors and residents alike. Its aim is to encourage and accommodate forms of appropriate development as part of an integrated planning strategy for the City, which will assist Bunbury in reaching towards its potential to become a significant tourist destination for domestic, interstate and international visitors. In a dynamic setting such as Bunbury, the needs of tourism must be incorporated within an integrated and coordinated strategy that steers all planning and development. The task of preparing an effective land use planning strategy for tourism has been made more complex by the rapidly changing environment within which it is produced. At a procedural level, Bunburys City Vision Strategy has just begun to be rolled-out and the findings and recommendations emerging from parallel local planning strategies have yet to be evaluated. Beyond structural change, there exists a myriad of forces at work that flow and combine to stimulate growth and lie behind the transformation taking place within Bunbury and its immediate surroundings. Successfully managing the effects of these forces is particularly challenging, and is made more difficult where reporting mechanisms are limited. Comprehensive and reliable data and information associated with Bunburys tourism and visitor market have yet to be fully developed, accordingly the base information and statistics used within this Strategy are equally limited, and will need to be further refined through an ongoing process of benchmarking, monitoring and evaluation. Despite the limitations, the Local Planning Strategy for Tourism represents a significant step forward, providing sufficient direction and focus to help positively shape the future of planning in the City in balance with other environmental, social, and economic considerations. The Strategy is particularly timely given recommendations recently prepared by the Ministerial Taskforce for Tourism Planning, matters relating to which are addressed as part of this document. It is important to note however that the scope of this document intentionally falls within the bounds of a future Local Planning Strategy, and as such is primarily concerned with addressing tourism issues in a manner that can be directly associated with and influenced by existing land use planning tools and associated mechanisms over which the City has authority and control. Consequently, initiatives requiring direct Council intervention (e.g. in the development or disposal of Council owned land for the purpose of realising specific tourism facilities), and matters related to events and marketing generally are not pursued within this Local Planning Strategy. Direction in this regard may be more proactively addressed through Tourism Marketing1 and Economic Development.

1 For example the City of Bunbury Tourism Strategy 2009-2014 is presently under preparation and will set out the Citys short term plans and approach to tourism at a corporate level over the forthcoming 5 year period.


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Meaning of Terms

5 As of Tourism Represented by Accommodation; Access; Attractions; Activities; and Amenities.

Activity Centre / Node

Locations where a range of activities exist or are encouraged.2

Core Tourism Area (CTA)

The area broadly recognised as being the visitor hub of Bunbury, providing the core services and infrastructure that supports the local tourism market; (currently encompasses City Centre; Ocean Drive/Beach; Outer Business District and East Bunbury LAP areas).

Local Area Plan (LAP) A plan that is neighbourhood focused and respects local differences in landscape, built character and community identity, etc.3

Model Scheme Text Model clauses for use by Local Governments in Western Australia in the preparation of schemes for the zoning or classification of land.

Non-Strategic Tourism Site (n-STS)*

(Regionally) renowned site providing (currently or potentially) short-stay accommodation within a location and at a scale (local market share) such that it is deemed essential to future of the local tourism product at least into the mid-term.

Recognised Tourism Site

Site providing small scale or incidental short-stay accommodation facilities that may not represent the sole or primary use on the site, but currently recognised as providing an on-going contribution to the local tourism product.

Strategic Tourism Corridor (STC)

Primary gateways / access routes into the City linking the CTA to the South West region.

Strategic Tourism Location (STL)*

Formalised term given to destination nodes and areas of visitor interest, represented by pockets and clusters within the city that hold visitor appeal and add to the value of the tourism product in Bunbury.

Strategic Tourism Place (STP)

(State) renowned tourism feature (natural or established) considered imperative to the long term future of the local tourism product.

Strategic Tourism Site (STS)*

(State) renowned site providing short-stay accommodation that is exceptional in character / setting and considered imperative to the long term future of the local tourism product.

Valued Tourism Site (Locally) renowned site providing short-stay accommodation of a specialist nature and / or at a scale such that it is deemed to make a valued contribution and destined to remain important to future of the local tourism product at least into the short term.

*Term introduced by the Tourism Planning Taskforce which has been extended to give more relevance to Bunbury and the LPS for Tourism.

2 Network City Community Planning Strategy for Perth & Peel, DPI / WAPC, September 2004.

3 There are 12 distinct local areas covering the City which provide an appropriate scale for local area planning.

In accordance with City Vision objectives, over time it is expected that each local area will have their own LAP, which will eventually simplify and rationalise the many different and overlapping local planning policies, structure plans, detailed area plans and guidelines operating within that area. In the mean time city-wide strategic planning use the LAP boundaries as framework that enables place specific solutions to be applied with relevance to the future.


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Summary of Proposed Action

Action Process Stage / Cycle

Intent

Revision of General Terms & Definitions

Scheme Amendment

Omnibus Amendment 4

Improved durability of the Scheme by providing meaning and /or removing ambiguity for terms that include Serviced Apartment(s);Hostel; Lodging House; Resort; Mixed Use Development; Short-Stay Accommodation.

Revision of Land Use Class Definitions

Scheme Amendment

Omnibus Amendment 5

Enhanced meanings within the Scheme for definitions that include bed and breakfast; hotel; motel; park home park; residential building.

Introduction of New Land Use Class

Definitions & Omission of Redundant

Definitions

Scheme Amendment

Omnibus Amendment 6

To provide within the Scheme a full and complementary range of new definitions that include short-stay grouped unit; short-stay multiple unit; unrestricted residential accommodation; unrestricted residential occupation; residential school; specialist care facility; guest house and removal of redundant definitions including boatel; holiday cottages.

Revision of Permissibility within

Zoning Table

Scheme Amendment

Omnibus Amendment

To provide newly introduced (proposed) land use classes with appropriate degrees of permissibility within a revised zoning table, and where discretionary decision making is applied, to have regard to specifically identified tourism areas, locations and corridors (CTA;STL;STC).

Revision of Land Use Zones

Scheme Review

LPS / TPS

To provide input into the integrated LPS for Bunbury and subsequently influence the re-structuring of land use zones in consideration of a revised Local Planning Scheme.

Revision of Special Use Zones

Scheme Amendment

All Stages

Appropriate revision of permitted land use classes and development conditions associated with special land use zones in order to better reflect desired outcomes as supported by the LPS for Tourism in cases where these would not be inconsistent (potentially) with the future integrated LPS for Bunbury.

Amendment to Local Planning Polices

Independent All Stages

Establish an up-dated suite of complementary planning policies that are consistent (not inconsistent) with the LPS for Tourism in respect of application of terms, land use class definitions and desired strategic outcomes.

4 Partially underway as part of Scheme Amendment no.17 (Site of the former Punchbowl Caravan Park).

5 See note 4

6 See note 4


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Action Process Stage / Cycle

Intent

Preparation of New Planning Policies

Independent All Stages

To increase the range and depth of planning guidance available in respect of tourism related development and in particular to assist in the introduction of the new (proposed) unrestricted residential classes of development.

Capture and sustain Strategic Tourism

Places within a local planning framework

LAP process /

Independent

LAP preparation /

other

To establish consensus in terms of primary role / functions and formulate a clear and sound basis for their integrated future growth and development as part of an adopted spatial plan. Whilst integral to the Local Area Plan (LAP) process, dedicated planning initiatives may occasionally be brought forward as and when appropriate.

Support for a District-wide Caravan &

Camping Grounds Strategy

Independent Not

applicable

To realise, in conjunction with both State and neighbouring local planning agencies, a comprehensive district-wide Caravan & Camping Grounds strategy that successfully establishes a long term framework to guide their future provision, retention and infrastructure requirements.

Support the preparation of an

integrated Bunbury Coastal Plan

Independent Not

applicable

A relevant (up-dated) Bunbury Coastal Plan that provides comprehensive guidance in planning for new development and in managing various activities on land and sea within the coastal zone.


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Part 1 Introduction

1.1 Purpose The City of Bunbury Local Planning Strategy for Tourism is to provide a clear and robust spatial planning framework for tourism that will guide growth and inform developers, investors and residents alike.

1.2 Aim To encourage and accommodate forms of appropriate development as part of an integrated planning strategy for the City that will assist Bunbury in reaching towards its potential as a major tourist destination for domestic, interstate and international visitors.

1.3 Objectives Directly and indirectly to:

1. Stimulate opportunities that will assist the further diversification of Bunburys tourism industry as envisaged by the City Vision Strategy.

2. Promote better management of interface issues arising from tourism activity and other uses (particularly residential activity) within the City.

3. Enable ensuing benefits to be secured for the whole community.

4. Support the enhancement of the tourism industry by acknowledging valued resources whilst both protecting and facilitating the ecologically sustainable use of the City's significant natural and cultural assets.

1.4 Background Recent findings suggest that Bunbury has been experiencing growth in the tourism sector at a rate of approximately 3% per year7. An overview of visitor number estimates over recent years is shown in Table 1.18. Prolonged growth, together with continuing efforts by the City and other agencies (such as Tourism WA) to promote Bunbury as a destination of choice, brings with it an obligation to provide facilities that adequately meet the needs and expectations of the visitor, whilst also acknowledging and respecting those lifestyle values and amenities already appreciated by the local community.

7 Bunbury Accommodation Study, Stage one Draft, MarkeTrade, 2007

8 LGA Fact Sheet, WA Tourism 2007 www.tourism.wa.gov.au

Make happy those that are near and those who are far will come.

Chinese proverb.


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The challenge, and the primary purpose of the document is to facilitate the successful integration of tourism with other land use planning strategies being developed for the City, and to support complementary initiatives that focus on the promotion of Bunbury as a place to live and visit9. Underlying all the local planning strategies currently being developed by the City of Bunbury are core planning principles firmly committed to promoting a safe, healthy and sustainable community. The philosophy is considered to be fully consistent with the desired outcomes for the growth and development of tourism in the City. To this end, the LPS for Tourism aims to provide the foundations of a clear and robust spatial planning framework for tourism that will guide and inform developers, investors and residents as Bunbury strives to fulfil its potential as a major visitor destination. This document highlights those issues and pressing concerns impacting on tourism within Bunbury, and puts forward, as part of a broader spatial planning framework for the City, a development rationale that seeks to deliver a mechanism for attaining desired outcomes together with supporting planning policies that will guide decision making processes. The Strategy is particularly timely given recommendations recently prepared by the Ministerial Taskforce for Tourism Planning10.

Table 1.1 Visitors to Bunbury 2002-2006.

Source: Extract LGA Fact Sheet - City of Bunbury, Tourism WA, 2007.

1.5 What is Tourism? 1.5.1 Tourism Defined

Tourism is extremely diverse, broadly defined by the World Tourism Organisation (UNWTO) as comprising the activities of persons travelling to and staying in places outside their usual environment for not more than one consecutive year for leisure,

9 For example the City of Bunbury Marketing Strategy (Draft 2006).

10 Tourism Planning Taskforce Report, Department for Planning and Infrastructure, January 2006.


City of Bunbury 3

business and other purposes. It includes therefore not only the annual family holiday but also a wide range of shorter visits, weekend breaks and day trips encompassing activities undertaken by both tourists (overnight visitors) and same-day visitors engaged in travel for business, professional and domestic purposes. The distinctions between activities are often not clear, sometimes more than one activity being involved, combining an element of tourism with a more specific purpose.

1.5.2 Why is Tourism Important?

Tourism is generally acknowledged as having an important role to play in economic, social and environmental well-being at national, regional and the local levels. It generates significant revenues, provides thousands of jobs, supports communities and helps maintain and improve valued assets. Tourism can also bring many broader benefits that contribute to the economic and social well being of local communities. Revenue generated by tourism can help to:

support and enhance local services;

secure the retention or upgrading of public services such as public transport, health centres and libraries;

support a broader and more vibrant and active community by attracting arts, sports or cultural events; and

underpin the quality of the local environment and facilitate further enjoyment of it by residents and visitors.

Locally, tourism depends heavily on the natural and built environment and can also be a driver to maintaining and enhancing that environment, noting that:

the economic benefits of tourism in particular can help to sustain and improve both the natural and built physical environment; and

proposals involving high quality design improve the visual and environmental experience for visitors and the local community alike.

Infrastructure and services provided for the local community may also be enjoyed and consumed by visitors to the region. Conversely, tourism enterprises often create benefits that extend beyond those intended for the tourist and the local community is able to take advantage of infrastructure and services established for tourism.

1.5.3 Planning for Tourism

Mechanisms for influencing or intervening in the provision of tourism related outcomes are offered through land use planning schemes and development assessment processes, as governed by State legislation and policy. By taking a pro-active role in facilitating and promoting the implementation of good quality development, the planning system can be crucial to ensuring that the tourism industry can develop and thrive, thereby maximising the valuable economic, social and environmental benefits. The planning system has a vital role to play in terms of facilitating the development and improvement of tourism in appropriate locations whilst at the same time aiming to ensure that benefits are achieved in the most sustainable manner possible.


City of Bunbury 4

With success there remains a need to monitor and counter a broad range of possible negative impacts, with issues that may range from increased littering, traffic congestion and parking problems at certain times, through to more long term effects such as shortages in house rentals and unavailability of affordable homes for local people. Furthermore, not all tourism investment is successful, and whilst viability is not something normally considered at the planning decision making stage, the planning process is often subsequently put under pressure to resolve issues ensuing from failed or failing investment projects, and react to economic, social and environmental implications that may stem from market downturns.

1.6 Need for a Strategic Approach Tourism is recognised as an important industry, and its continued growth in Bunbury, as elsewhere, will be influenced by how effectively tourism developers engage with the local planning process, and how far this process is geared towards responding to their needs and demands within a highly competitive and changing market. Tourism however can rarely be planned for and managed in isolation, being heavily reliant on the one hand on the pace and quality of supporting infrastructure provision such as transport services, and on the other hand, requiring to be balanced against other local needs, competing land uses, amenity values and safeguarding the integrity of the natural environment. In a dynamic setting such as Bunbury, tourism needs must be incorporated within an integrated and coordinated strategy that steers all planning and development. Accordingly, in implementation and in relation to the planning policies it generates, the Planning Strategy for Tourism should reflect a position of being one component of a fully integrated planning process, and acknowledge the broader linkages that exist to other Local Government strategies, policies, plans and services.

1.7 City Vision for Tourism 1.7.1 Vision Statement

The ultimate goal of all planning initiatives within the City of Bunbury is to seek to achieve the vision articulated within the City Vision Strategy11:

A uniquely Western Australian international port city linked into the global economy, Bunbury will strive to become a sustainable community, offering a high quality of life, focused on balancing environmental, social and economic needs. As the capital of the South West, it will aspire to promote the region as one of the finest in Australia, recognised for its diversity in culture, lifestyle opportunity and economic strength.

1.7.2 Alignment with Goals, Objectives & Strategies

Moving beyond its acquired tag of gateway to the South West, Bunbury is striving to form a reputation as a tourist destination in its own right. Traditionally, the most successful tourism destinations are serviced by good city infrastructure, valued cultural precincts, first-rate sporting venues, conference venues, attractive parkland, and efficient road, rail and air networks. Expanding on the range and appeal of facilities and services presently available within Bunbury, the City Vision Strategy

11

Shaping the Future of Bunbury, City of Bunbury, October 2006.


City of Bunbury 5

specifically identifies the following tourism goals and objectives:

Eco2 Establish the City of Bunbury as a major tourist destination for domestic, interstate and international visitors.

2.1 Prepare a Tourism Marketing Strategy that highlights the City and regional attractions and the availability of accommodation and services.12

2.2 Identify, enhance and expand tourist attractions in the Strategic Regional Centre and ensure that the Central Business District is planned and developed as the arrival point for visitors including an enhanced Visitor Centre.

2.3 Provide for a range of accommodation types in the Strategic Regional Centre and particularly the Ocean Beach Coast.

The Local Planning Strategy for Tourism necessarily conforms to the adopted City Vision Strategy13, relevant recommendations from which are adopted as guiding principles and text extracts are included at appropriate points throughout this document.

1.8 Relationship to other Local Planning Strategies The Local Planning Strategy for Tourism is one of a number of parallel planning strategies scheduled to be prepared by the City of Bunbury and these will eventually be fully integrated and comprise the Local Planning Strategy (LPS) for Bunbury. The principle limitation of the LPS for Tourism is that it has been prepared in advance of several other emerging Local Strategies that are under varying degrees of development. Accordingly, whilst a triple bottom line approach has guided the development of the LPS for Tourism, desired outcomes and impacts are presently advanced outside the context of the other Local Planning Strategies. It will be the purpose of the Strategy to consolidate each individually prepared sector based Local Planning Strategy into an integrated and coordinated sustainable land use and development plan for the City. The LPS for Tourism shall remain an active document following the eventual adoption LPS for Bunbury and will continue to be reviewed and up-dated. Should however the LPS for Tourism vary from an adopted LPS for Bunbury, then the adopted LPS shall prevail. The LPS for Bunbury and interrelated Council strategies, policies, plans and services sit beneath the umbrella of the City Vision Strategy, as illustrated in Figure 1.1.

12

This falls outside the scope of the Local Planning Strategy for Tourism and will be addressed as a distinct strategy initiative.

13 Adopted in principle by City of Bunbury Council on 12

th December 2006; endorsed 18 September 2007.


City of Bunbury 6

Figure 1.1 Linkages to the rest of the Local Planning Policy Framework.

1.9 Relationship to other City Strategies The LPS for Tourism is intended to shape the preparation of a revised Local Planning Strategy and as such it remains primarily concerned with addressing tourism issues in a manner that can be directly associated with and influenced by existing planning tools and mechanisms over which the City has authority and statutory control. Consequently, initiatives that call for direct market intervention (i.e. in the development or disposal of Council owned land for specific tourism purposes) and/or are related to branding, marketing and event programming are not addressed within this Strategy but more appropriately fall within the domain of other City development plans and strategies. The various strategies are intended to be complementary and align with goals and objectives associated with the long term City Vision Strategy and the corporate Strategic Plan.

Community Planning

Integrated Planning

Sustainable Planning

Local Planning

Strategy

City Vision Strategy

Local Planning Strategy for Heritage &

Character

Local Planning Strategy for Environmental Assets & Natural

Resources


for Tourism

Local Planning Strategy for Activity Centres &

Neighbourhoods


for Integrated Transport


City of Bunbury 7

Figure 1.2 Aligning tourism with the delivery of Local Government activities (projects,

programs and services).

1.10 Scope A key recommendation of the State governments Tourism Planning Taskforce Report14 was for the designation of tourism sites and precincts that are appropriately zoned in order to protect their long-term role and function for one or more of the five elements or factors that are commonly used to identify and address the development needs of the tourism industry in Western Australia. These elements or factors are also known as the five As of tourism (refer to Figure 1.3).

Figure 1.3 The five As of tourism and their interrelationships.

The Tourism Planning Taskforce Report sets out the parameters for the designation and development of tourism sites and precincts, and includes the self-evident need for them to be located near established services and infrastructure in order to ensure their maximum viability and synergy. The rationale for this approach is founded on the demonstrable evidence that the five As of tourism are fundamentally interdependent, and as such, the degree of their presence in a place therefore critically underpins the performance of a tourism development. The Tourism Planning Taskforce Report broadly delineates the scope of what a comprehensive tourism strategy should address. The breadth and depth of such a scope remains a challenge, and cannot be reasonably dealt with in the short-term.

14

A report of the Ministerial Taskforce to the Minister for Planning and Infrastructure (endorsed by Cabinet in January 2006).

Amenities

Activities Attractions

Access Accommodation

Tourism related Local Government Activities

Statutory

Land Use Planning & Urban

Design

Non-Statutory

Arts & Cultural

Services

Infrastructure

Provision

Visitor Services

Economic

Development

Parks & Gardens

Sport & Recreation

Events Management

Marketing Programs

Management Plans


City of Bunbury 8

Consequently, the Local Planning Strategy for Tourism will establish the framework and methodological approach that will continue to be built on over time, and will primarily consider the appropriate provision of visitor/tourist accommodation within the City. In doing so, the Strategy will seek to promote compatible forms of development that both responds to the goals set by City Vision and also acknowledge established and changing physical character of local areas and the tourism places within them. At a secondary level, the Local Planning Strategy for Tourism will address land use planning (i.e. spatial) implications of access, amenities, activities and attractions, and thereby assist the positive integration of tourism as a land use activity within the Citys physical (natural and built) and economic environments. The role and integration of these elements from a tourism perspective will be developed further at a later stage as part of ongoing strategy and monitoring review. The Local Planning Strategy for Tourism and its subsequent components purposefully focus on planning related matters in attempting to successfully address issues relating to type, location, size and design of tourism-oriented developments and supporting infrastructure. The Strategy will inform and influence Local Government decisionmaking, public investment and expenditure. Key outputs include:

revisions to the planning processes and procedures related to tourism based development including clearer definitions of all short-stay use classes;

general policy guidance regarding development of short-stay accommodation types;

mechanisms and Policy Guidance dedicated to facilitating and controlling use of dwellings for short term letting;

special provisions for areas of identified tourism appeal or interest;

review of the objectives and development controls associated with tourism development under the Local Planning Scheme and associated Local Planning Polices; and

specific development conditions for tourism sites currently designated as Special Use Zones under the current City of Bunbury Town Planning Scheme No. 7 (TPS7).

Whilst the definition of tourism as referred to earlier clearly covers the broad spectrum of individual needs and demands, the initial Strategy primarily focuses on addressing requirements of the short-stay visitor, as opposed to those seeking longer term and temporary housing requirements. Matters directly related to marketing similarly lie outside the scope of this particular document15. Also outside the scope of this Strategy are the private management arrangements of tourism operations, issues concerning strata management, and other matters judged beyond the jurisdiction of Local Government.

15

Marketing is addressed as part of the Marketing Strategy for Bunbury 2008 and the Tourism Strategy 2004 prepared by the City of Bunbury Tourism Working Group.


City of Bunbury 9

1.11 Methodology 1.11.1 Analysis

The Local Planning Strategy for Tourism seeks to quantify the state of Bunburys tourism assets and values in Part 2, and then identify those pressures that are currently being experienced that may affect those assets and values (positively and/or negatively). Based on this analysis, a set of corresponding Strategy Approaches are then set out in Part 3 in response to the identified strengths, weaknesses, opportunities and threats (also referred to as the pressure state response model).

Figure 1.4 Diagram of the Pressure State Response model.

1.11.2 Principles & Philosophy

There is a presumption that tourism is firmly embedded within our local economy and lifestyle and that it will remain part of Bunburys future. Whilst the free market economy is the primary mechanism for the provision of tourism accommodation and associated services, there is a role for appropriate regulation to keep the local industry healthy and sustainable and to manage the positive and negative consequences of tourism growth.

1.11.3 Inception

The starting point and initial direction for the Local Planning Strategy for Tourism was an assessment of the prevailing status of tourism in Bunbury, together with identification of perceived gaps between the current situation and desired outcomes, as most recently conveyed through the City Vision Strategy. The status of the tourism market in Bunbury was recently assessed as one of a number of issue papers prepared and assimilated into a Scoping and Positioning document during early stages of the City Vision process16. Planning matters, including those related to tourism, were also discussed and investigated during stakeholder workshops and within conceptual visioning plans used to generate interest and debate in the visioning process17. This provisional information has been supplemented with additional research that has included a review of experiences and approaches from elsewhere in WA, and advice and guidance emerging from State government agencies.

16

Tourism Issue Paper, October 2004; City Vision Scoping and Positioning Paper, CoB, November 2004. 17

For example the City Vision Tourism, Economic Development & Marketing Presentation & Workshop, November 2004.

Pressure

State Response

Values


City of Bunbury 10

1.12 Preparation & Consultation 1.12.1 Consultation To-date

The LPS for Planning has been prepared by the Strategic & Environmental Planning team of the Citys Development Services Department with the assistance of other professional and executive staff at the City of Bunbury. The stakeholder consultation process / engagement program for the Strategys development to date has involved: Input in respect of a Preliminary Draft was attained from the following participants:

City of Bunbury planning staff;

Tourism WA;

State Department of Planning and Infrastructure; and

South West Development Commission Upon feedback, the Preliminary Draft was revised to form a First Draft, and used in consultation with:

Other City departments;

Visitor Centre staff;

City Executive;

City Councillors; and

Individual stakeholders within the industry. Following consideration and review of the feedback, a Revised First Draft was prepared and Council resolved to initiate a formal period of public advertising. Following public advertising the Strategy is to be returned to Council for their reconsideration in the light of public comment / written submissions. The Final Draft adopted by Council, will be forwarded to the Department of Planning and Infrastructure/ West Australian Planning Commission to seek their support and endorsement. Further periods of formal advertising (and where appropriate engagement events) will be undertaken with the community as individual statutory components (e.g. Scheme Amendments and Local Planning Policies) are rolled out from the adopted Strategy.


City of Bunbury 11

Figure 1.5 Stages and milestones in progressing the Local Planning Strategy for Tourism.

Local Planning Policy Framework development and implementation

First Draft

Revised First

Draft

Report to

Council

Public

Consultation

Report to

Council

Final Draft

Strategy

Development

Preliminary Draft

Adopted

Strategy

Strategy implementation

Core agency input

Core agency consultation

Council Briefing, informal agency & stakeholder engagement

WAPC endorsement

Council consideration

Initiation of public advertising

Further Council consideration

Formal consultation process

Council adoption


City of Bunbury 12

Part 2 Context & Analysis

2.1 Government Tourism Organisations and Structure At the National level, the Federal Government is committed to maintaining a policy and regulatory framework that stimulates demand and growth, and will maintain investment in tourism transport infrastructure18. This role is primarily discharged through the agency called Tourism Australia (focusing on marketing and market development) and the Department of Industry, Tourism and Resources (focusing on tourism infrastructure provision). At the State level, the equivalent State Government agency is called Tourism Western Australia, which has two primary roles of:

promoting WA to attract more visitors and increase their length of stay; and

attracting investment and assisting in tourism development. Working closely with government is Tourism Council WA, which represents the tourism industry as the peak body in WA. The organisation (non-governmental) Australias South West Incorporated (ASW) works within the region, with the primary function of marketing, whilst also representing the interests of the industry in the region to government, community and media, and works closely with local tourism associations. Locally there are a number of Tourism Associations that are represented by the visitor centres. Whilst their main role is to care for the visitor upon arrival, they also perform various marketing and co-ordinating roles, and provide forums for liaison between members of the industry with regional government and with the local community. The Tourism Industry Structure is shown in Figure 2.1.

18

Tourism White Paper: A Medium to Long Term Strategy for Tourism; Australian Government (2003).


City of Bunbury

Figure 2.1 Tourism Industry Structure.

Source: Tourism WA 2005


City of Bunbury 14

2.2 The Legislative & Planning Policy Framework 2.2.1 Federal Government

Whilst good communications and cooperation with all tiers of government is seen as vital in order to successfully coordinate and implement emerging initiatives, the influence of Federal government is limited in respect of shaping spatial planning (i.e. Local Planning Strategies and Local Planning Schemes), which are essentially viewed as function of the State and Local Governments.

2.2.2 State Government

The State Planning Framework incorporates statutory and non-statutory instruments to inform or regulate the subdivision, use and development of land within the State of Western Australia (see Figure 2.2). The overarching strategic planning document for land use planning is the State Planning Strategy (1997), which then informs regional and local level planning instruments and processes. The State Planning Framework is set out under the Statement of Planning Policy No. 1: State Planning Framework Policy (SPP1)19, which unites existing State and regional policies, strategies and guidelines within a central framework that provides a context for decision-making on land use and development in Western Australia. The policy was initially gazetted on 22 December 1998, but has since been further updated to include additional regional strategies, regional and sub-regional structure plans, strategic and operational policies that have been endorsed by the Western Australian Planning Commission (WAPC). The State Planning Framework brings together existing policies, strategies and plans approved by the WAPC in order to assist Local Governments in preparing their own planning instruments, and also clarify the State and regional policies that apply to a particular locality. A notable recent change in process and procedure followed the gazettal of the Greater Bunbury Region Scheme (GBRS) in late 2007. This statutory document sets out planning provisions that applies to designated zones and reservations across the City of Bunbury and Shires of Capel, Dardanup and Harvey. Local Planning Schemes must ensure that they now comply with these current provisions.

19

Full citation at time of publication being Statement of Planning Policy No. 1: State Planning Framework Policy (Variation No. 2).


City of Bunbury 15

Figure 2.2 State Planning Framework and Tourism

Western Australia has not prepared, as yet, a State Tourism Planning Strategy nor any Statements of Planning Policy specifically addressing tourism20. The State Planning Strategy (1997) does indirectly address the need to plan for tourism, and in doing so identifies a number of actions for implementation within the regions:

to include within schemes provision for tourist accommodation and other facilities in areas of with tourism potential;

to identify country tourism opportunities and indicated infrastructure and planning requirements;

to continue to support tourism development within the framework established for development in ecologically sensitive areas;

There are polices and guidelines prepared by the State which are relevant to matters associated with planning for tourism, notably the Statement of Planning Policy No. 2.6: State Coastal Planning Policy (SPP 2.6) which contains the following objectives:

protect, conserve and enhance coastal values, particularly in areas of landscape, nature conservation, indigenous and cultural significance;

provide for public foreshore areas and access to these on the coast;

ensure the identification of appropriate areas for the sustainable use of the coast for housing, tourism, recreation, ocean access, maritime industry, commercial and other activities; and

ensure that the location of coastal facilities and development takes into account coastal processes including erosion, accretion, storm surge, tides, wave conditions, sea level change and biophysical criteria.

20

Planning Bulletin 83 (WAPC: June 2007) summarises the recommendations of the Tourism Planning Taskforce and is intended for use as an interim policy prior to the development of a State Planning Policy.

State Planning Framework

Local Planning

Policy Framework

State Planning

Strategy

State Planning

Policies Network city

Greater Bunbury

Region Scheme

Town Planning

Regulations

Planning and

Development Act

State Sustainability

Strategy

Environmental

Protection Act


City of Bunbury 16

An amendment to this policy in 2006 also introduced a specific policy measure in respect to building height limits that are to apply within a 300 metre buffer of the coastline. Although a Local Planning Scheme can specify lower maximum height limits in particular localities, the policy essentially requires the heights of buildings within this zone to be limited to a maximum of 21 metres (up to 5 storeys). Higher structures up to a maximum 32 metres (up to 8 storeys) may be permitted in certain circumstances, for example where the location is part of a major tourist or activity node.

2.2.3 Local Government

Spatial land use planning at the local level is regulated by Local Governments through their respective Local Planning Policy Frameworks, the preparation of which is the responsibility of the Local Governments under the jurisdiction of the WAPC. The elements and purpose of a Local Planning Policy Framework (LPPF) is prescribed under the Planning and Development Act 2005, and is principally composed of a Local Planning Strategy, a Local Planning Scheme and subsidiary Local Planning Policies. In simple terms, the Local Planning Policy Framework is the expression of the State Planning Framework at the local level, taking account of geographically specific issues and conditions. The importance of tourism and just how far it features as a matter, if at all within a Local Planning Policy Framework (i.e. as a either a dedicated zone or defined land use class within a Scheme, or through supplementary policy) and more broadly as part of an integrated corporate strategy, is largely at the discretion of individual Local Governments. The Report of the Ministerial Taskforce for Tourism Planning21 identifies considerable variation in the way tourism developments are defined and accommodated within local government planning schemes. In response, the Ministerial Taskforce Report puts forward a number of recommendations and initiatives, which includes:

The preparation and approval of local tourism planning strategies or specific tourism components within local planning strategies by local government as a framework for decision-making on tourism proposals. A local tourism planning strategy will identify strategic tourism sites or locations that provide for the retention and future development of a range of tourist accommodation to meet the projected demand in that locality.

2.2.4 City of Bunbury 2.2.4.1 Tourism Planning Framework

Activities undertaken by the City of Bunbury that seek to improve and up-grade local facilities, services and infrastructure will often assist the visitor as well as the local community who may be regarded as the main or intended beneficiaries. Except where services have been provided or projects implemented that are exclusively aimed at the visitor market, it becomes difficult to segregate and measure individual benefits to tourism and the tourism industry. In terms of focussed operations, the City of Bunbury will direct its efforts for the planning and provision of tourism resources primarily through the branding and

21

Tourism Planning Taskforce Report, DPI, 2006.


City of Bunbury 17

marketing of Bunbury as a destination and by the management and control of land uses and supporting infrastructure through a local planning strategy framework. Related functions and responsibilities and that are carried out across a number of departments within the City and some of these are highlighted in Table 2.1.

Table 2.1 City of Bunbury and Tourism Related Functions.

Department / Key Sections Tourism Related

Activities / Services Targeted Programs

Cit

y D

ev

elo

pm

en

t

Strategic & Environmental Planning;

Statutory Planning;

Building Services;

Environmental Health;

Community Law & Safety (Ranger Services).

Local Planning Policy Framework (Strategy, Scheme and Policy);

Development assessment;

Liquor licensing (input);

Event licensing;

Law and order;

Parking.

Bunbury LPS (incorporating LPS for Tourism);

LAP development;

Scheme Amendments;

Big Swamp Management Plan;

Turkey Point Management Plan;

Community Safety & Crime Prevention Plan;

Risk & Emergency Management Plan;

Parking Strategy.

Cit

y L

ife

Visitor Centre;

Marketing;

Library Services;

Economic Development;

Sport, Recreation & Leisure;

Communications.

Information resources;

Branding;

Promotional material;

Events co-ordination;

Press releases;

Culture, arts and sports development.

Tourism and marketing strategies;

Events business plan;

Access Tourism Program;

Economic Development Strategy;

Sport & Recreation Plan;

Three Waters Centre development;

Public Art Strategy.

Cit

y S

erv

ice

s

Engineering;

Urban Design/ Landscape;

Depot.

Infrastructure development;

Asset maintenance;

Parks and grounds management;

Highway maintenance;

Signage;

Litter and waste collection.

Back Beach Enhancement Program;

City Entry Statements;

City Path Plan;

Integrated Transport Strategy;

Asset Management Strategy;

Reserve Management Plans.

Co

rpo

rate

Se

rvic

es

Property Management.

COB Land Sales/ Purchases and Leasing.

Various (including Koombana Caravan Park).


City of Bunbury 18

The LPS for Tourism has been prepared primarily to support the core functions and responsibilities of Councils strategic planning and development assessment functions, and will become an integral part of the Citys own Local Planning Policy Framework described in the next section. Nevertheless, in keeping with the comprehensive and integrated approach envisaged by the City Vision Strategy, the document should also be seen to benefit from and complement all tourism based activities and services implemented across other departments of the Local Government.

2.2.4.2 Existing Local Planning & Policy Framework

The City of Bunbury Town Planning Scheme No. 7 (TPS7, also referred to as the Planning Scheme or just Scheme) is a Local Planning Scheme that was adopted in 2002 under the previous Town Planning and Development Act 1928. Sitting beneath the recently gazetted GBRS, the Planning Scheme is the principal statutory instrument by which the City is able to control and influence land use and development within its boundaries. The Scheme however does not presently seek to influence the provision of tourism oriented development within the City. The current Scheme does not incorporate a standard tourism zone or tourism related use classes (i.e. for short-stay accommodation) over and above the long established use classes for accommodation (e.g. bed and breakfast, hotel, motel, etc), eating and drinking establishments (night club, restaurant, tavern, etc) that are listed under the zoning table. Instead, medium to large scale tourism oriented operations that are complex and incorporate a mix of interrelated uses generally occur within a Special Use Zone. Special Use Zones are typically created to cater for categories of land use which do not comfortably sit within any other zone in the Scheme, such as large scale tourism proposals. The range of uses and their conditions for development is stipulated under Schedule 2 of the Scheme22 for each individual Special Use Zone site, or are alternatively, are prescribed as being at the discretion of Council. Additions, deletions or changes to the Schedule of Special Use Zones require a scheme amendment. Whilst the use of Special Use Zones to cater for specific tourism developments is in theory an adequate approach, in practice, inadequacies of provision drafting under the current Scheme may have resulted in difficulties for the Schemes operation. Examples of where such difficulties may arise are given below:

Tourism activity associated with a Special Use Zone is most often linked to provision of a specific type (use class) of visitor accommodation. Some of these sites are developed whilst others remain vacant. Significantly, on the ground at least, there appears to be considerable capacity within several occupied sites for up-grading and greater intensification of use. Development criteria associated with the Special Use Zone sites however seldom provide an indication of the probable or intended intensity of tourism activity, and consequently there remains a range of outcomes and possibilities that may result through redevelopment or otherwise, including significant variation in the resulting scale of the operation.

In some instances tourist accommodation appears as a permissible use as part of a mixed-use development within a Special Use Zone, but without any indication of how much, if any, of the land may eventually be used for tourist accommodation.

22

TPS7 varies from the Model Scheme Text (MST) in a number of ways, including the schedule numbering, which should in fact be Schedule 4 Special Use Zones.


City of Bunbury 19

Reference to short-stay accommodation also sometimes appears within precinct design guidelines, without however an appropriate definition or explanatory information as to the manner in which this use is to be incorporated or assessed.

Some zones, such as the City Centre Zone, permits, in principle, the development of hotels, motels and similar. Precisely where and to what extent such uses are pursued however will largely be down to land availability and the influence of market forces. No land use policies have been prepared to-date that would positively affect such outcomes.

The use or potential use of dwellings for short-stay occupation on a commercial basis is not addressed within the current Planning Scheme. Failure in the current planning process to clearly capture and tackle increased demands for such operations merely encourages uncontrolled development and can lead to inadequate standards of provision, with unchecked impact upon residential amenity and an increased likelihood of neighbour disputes.

Planning control and influence over other visitor services and facilities that may fall under the guise of amenities, attractions and activities are not directly linked to a identified tourism need or strategic goal associated with TPS7, but processed and assessed independently, primarily in terms of how appropriate they may be to the stated objectives and character of the parent land use zone.

Despite the importance of the coastal fringe to the character and setting of Bunbury, the significance is not reflected within any part of the Scheme or within supporting planning polices. As a rapidly developing urban area, with significant and varied pressures placed the coastal fringe, there would be benefit for the emerging Local Planning Strategy to be matched with a complementary Local Coastal Planning Strategy that specifically deals with management of the coastal zone23, in keeping with approach suggested by WAPC24 and already being progressed along the Perth metropolitan coastline25.

In addition to the above, one issue regularly encountered at the present time is the desire / pressure that continues to be exerted by landowners of Special Use Zone sites providing tourist accommodation, for an amendment to TPS7 that would allow full or partial use their sites for permanent residential purposes. Whilst adhering to current conservative approach that seeks to safeguard the integrity of tourism accommodation provision, there is a corresponding need to ensure planning controls enable sufficient flexibility to allow suitable and timely refurbishment, upgrading and redevelopment of sites throughout the life cycle of a tourism facility. As a first step to addressing this issue, it is important that the Local Planning Policy Framework reflects and expresses the States own Tourism Planning Taskforce Report outcomes appropriately at the local level. The Citys position in terms of Tourism Development (or lack of it) within the current local planning framework is summarised within Table 2.2. The shortfalls identified confirm an urgent need to provide clear direction and guidance on the development of tourism resources for the City.

23

Management responsibilities below the mark of the high water-tide lie with the State government. 24

'Coasts WA: Better Integration. The Western Australian Government's Response to the Coastal Taskforce Review' (2003).

25 Perth Coastal Planning Strategy is currently being prepared by WAPC.


City of Bunbury 20

Table 2.2 Tourism and the Current Local Planning & Policy Framework.

Current Mechanisms Citywide Local Area Precinct


LPS for Tourism

Local Planning Scheme Not applicable Not applicable

Use Classes (definitions) Deficient in range - -

Zoning Table (permissibility) Restrictive - -

Scheme Map (zones) Unaccommodating (relies on Special

Use zones)

- -

Local Planning Policies

Strategic Planning

Design Guidelines

Land Use & Development Limited to bed &

breakfast use Poorly defined

references

2.3 Analysis of the 5 As of Tourism in Bunbury 2.3.1 Accommodation 2.3.1.2 Range & Demand Figure 2.3 Estimated Numbers of Overnight Visitors to Bunbury 2005/06.

Figures based on a 2 year average as provided by: LGA Fact Sheet - City of Bunbury, Tourism WA, 2007.

Intrastate

247,000 intrastate visitors stayed overnight in the City of Bunbury, accounting for 83% of total visitors to the area.

Intrastate visitors stayed a total of 511,000 nights in the City of Bunbury. On average they stayed 2.1 nights.

Interstate

30,000 interstate visitors stayed overnight in the City of Bunbury, accounting for 10% of all visitors in the area.

Interstate visitors stayed a total of 115,500 nights in the City of Bunbury. On average they stayed a total of 3.9 nights.

International

21,000 international visitors stayed overnight in the City of Bunbury, accounting for 7% of all visitors to the area.

International visitors stayed a total of 170,000 nights in the City of Bunbury. On average international visitors stayed for 8.1 nights.


City of Bunbury 21

Whilst their ancillary services (e.g. restaurant, bar) may cater for other users, the accommodation sector is clearly focused towards the overnight visitor and is perhaps the most obviously associated with public perceptions of tourism and the tourism industry. Analysis prepared by Marketrade26 in 2006 identified 36 commercial accommodation facilities, offering 1,258 rooms/sites or approximately 3,067 bed-spaces, and comprising the following:

13 - Hotel/motel/resort facilities;

8 - serviced apartment facilities;

4 - caravan parks (3 operational);

2 - backpacker facilities;

9 - bed & breakfast27;

? - an unknown number of informal private short-stay / holiday homes. Annual occupancy rates (commercial facilities) were estimated to average 60% (signalling high demand), with the seasonal rate increasing significantly during school holidays. The corporate market, closely associated with business activity in the region was acknowledged to be an important contributory sector, occasionally however to the detriment of the holidaymaker who can find it difficult to book into any accommodation during busy times. The principle driving forces behind expansion of both the corporate and the holiday markets were predicted to continue into the foreseeable future, and as a consequence, further growth in the tourism sector should be expected. Several hotel developments have recent planning approvals or in some cases have approved works underway, which once completed would add to the number and mix of rooms currently available in Bunbury, in particular:

Mantra Hotel, Bunbury Silos / Waterfront28;

Welcome Inn, Ocean Drive (redevelopment of existing facility); and

Fawlty Towers, Ocean Drive (redevelopment of existing facility). Table 2.3 provides a snapshot comparison of facilities available in Bunbury to those available in a number of other centres in WA as compiled by the Australian Bureau of Statistics. Table 2.4 shows comparison (by type and year) of the use of overnight facilities by visitors as compiled by Tourism WA.

Table 2.3 Regional Overview of Short-Stay Provision.

Area Hotels, Motels &

Serviced Apartments (>5 rooms)

Visitor Hostels Caravan Parks

Albany 20 2 11

Bunbury 13 2 4

Busselton 39 2 13

Geraldton 12 1 3

Mandurah 10 - 9

Australian Bureau of Statistics (ABS) December 2006.

26

MarkeTrade consultants were engaged by the City and Tourism Western Australia to carry out a visitor accommodation study in 2006. Findings appeared in the Bunbury Accommodation Study, September 2007.

27 The Citys records identified 6 operating B&Bs registered with the City of Bunbury Visitors Centre.

28 Opened December 2008.


City of Bunbury 22

Table 2.4 Overnight Accommodation in Bunbury.

LGA Fact Sheet - City of Bunbury, Tourism WA, 2007.


City of Bunbury 23

Map 2.1 Tourism Accommodation, Access, Attractions, Activities & Amenities in Bunbury

Access:

i Airport

ii Bus Station

iii Cruise Ship Berth

iv Passenger Railway Station

v a / Boat Pens

vi Taxi Rank

Amenities:

Visitor Centre

Post Office / Banks

Shops

Restaurants / Cafes

Cinema / Theatre

Entertainment Centre

Library

Parking

Internet Access

Recreation Areas

CBD

Cluster

continued

18 Lord Forrest Hotel

19 Burlington Motel

20 Prince of Wales

21 Rose Hotel

22 Parade Hotel

23 Highway Hotel

24 Dolphin Retreat

25 Wander Inn

26 Boathouse (B&B)

27 Sussex on Willis (B&B)

28 Lamorna (B&B)

29 Swanto House (B&B)

30 Maiden Hill House (B&B)

31 Aran Brae (B&B)

32 Heron House (B&B)

33 Ellens Cottage (B&B)

34 Pelican Point (undeveloped)

Accommodation:

1 Koombana Holiday Resort

2 Bunbury Glade Caravan Park

3 Bunbury Village Holiday

Local Planning Strategy for Tourism - Adopted May 09 and Building/Local_Planning... · • Map 2.1 (5 A’s) ... 2.3 Analysis of the 5 A’s of Tourism in Bunbury ... Local Planning

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