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Postcards from HomeThe Local Government Tourism StrategyMay 2003
effective local governance
Local Government New Zealand
PO Box 1214, Wellington, New Zealand
phone: 04 924 1200, fax: 04 924 1230
email: [email protected], www.lgnz.co.nz
ISBN 1-877144-03-7
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Introduction and Background
This strategy has been prepared in response to the New Zealand Tourism Strategy 2010. The document
put forward 43 recommendations, 10 of which require local government to engage more actively in
the tourism sector (refer Appendix 1). In early 2002, Local Government New Zealand identified the
need for a programme that would stimulate more active involvement of councils in response to the
recommendations in the New Zealand Tourism Strategy 2010. A four-step programme led by Local
Government New Zealand and funded by the Minister of Tourism, resulted in:
• Formation of a Tourism Project Team made up of local government and other
stakeholder interests (refer Appendix 2).
• Reviews of local government involvement in planning for tourism, partnerships and
provision of infrastructure, product development and marketing. The purpose of the
reviews was to scope current practices, issues, success stories and to inform the
formulation of a strategy for the local government sector (these reviews are available
on the Local Government New Zealand website www.lgnz.co.nz). The reviews took
place between April – May 2002.
• Seminars in Palmerston North, Whakatane, Hamilton, Blenheim, Invercargill. The
seminars aimed at raising awareness of councillors, community board members,
Economic Development Agency staff, managers and board members of Regional
Tourism Organisations of the scale and significance of local government involvement
in tourism. The seminars took place during July 2002.
• A National Tourism Symposium to discuss a draft response and strategy for local
government involvement in tourism. This was undertaken in September 2002.
The Symposium focused on key actions that would clarify roles and strengthen the current position
of local government in relation to tourism. The actions, outlined later in this document, were derived
from the work carried out in Steps 1 through 3. These actions have also been informed by responses to
the New Zealand Tourism Strategy 2010 formulated by the network of Regional Tourism Organisations,
Tourism New Zealand, the Tourism Industry Association New Zealand and the Ministry of Tourism.
The Symposium indicated general consensus for almost all of the recommended actions. Comments
and suggested changes from the Symposium have been integrated into this draft which has been
circulated to all councils and partner agencies to garner further comment. A total of 25 submissions
were received and the comments were incorporated into this strategy.
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Why do we need a strategy?
Tourism is a complex sector having a wide range of stakeholders at national, regional and local levels.
We have prepared this document in order to:
• Provide a clear and cohesive local government response to the recommendations of
the New Zealand Tourism Strategy 2010.
• Look beyond the recommendations in the Strategy 2010 and explore other issues and
opportunities for local government involvement in tourism.
• Clarify the role of local government and its relationships with partner agencies.
• Raise the awareness of local government to the significance of the tourism sector for
local communities.
• Provide a framework for ongoing collective action by the local government sector.
This document is not meant to replace the New Zealand Tourism Strategy 2010 in any way. Rather it
will act as a companion strategy with a more specific set of actions aimed at keeping tourism on the
agenda of local government.
How are we involved with tourism?
• By statute, we, along with the Department of Conservation, are the engine room
that drives the planning and management of New Zealand’s natural and cultural
resources. Tourism, among other industries, relies on having these resources in a
healthy state.
• We provide the core utilities and infrastructure on which the tourism industry is based.
This includes district and city roads, lighting, water and sewerage, public transport
systems, signs, airports and ports and attractions such as museums, art galleries,
sports stadia, convention centres, parks, gardens and other amenities. Collectively,
this represents a multi-billion dollar investment of public money. It also means that
local government is perhaps the largest ‘tourism operator’ in the country.
• We enable regional marketing and provide tourist information by being the primary
source of funding of Regional Tourism Organisations and the Visitor Information
Network.
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Who is it for?
The Strategy has been prepared for and with input from:
• Elected representatives and council staff,
• Managers and staff of Regional Tourism Organisations,
• Economic Development Agency staff,
• The Visitor Information Network.
While the strategy is primarily for local government, we recognise the input from and important
relationship we share with our partner agencies such as the Ministry of Tourism, Tourism Industry
Association New Zealand, Tourism New Zealand, Department of Conservation, Transit New Zealand
and Industry New Zealand.
We understand that councils are involved with destinations at different stages of development. Some
of the actions in this strategy will not be relevant to some councils (either they have undertaken some
work already or they are not at a stage where they are ready). However, it was evident at the National
Tourism Symposium that the strategy contained something for most if not all councils.
We recognise that each local authority is autonomous and is free to choose the extent of their
involvement in tourism and the level of implementation of this strategy.
Our vision
Local government will lead, enable and work in partnership with other stakeholders to ensure a
successful and sustainable tourism sector.
Our mission
We are engaged in the tourism sector in order to:
• Optimise social, economic, environmental and cultural outcomes for communities,
through planning for sustainable development, facilitating growth and managing
effects.
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Our Strategies and Action Plan
Strategic Aims
1. To provide and manage tourist-related infrastructure in consultation with the
private sector and relevant stakeholders.
2. To engage communities in planning for tourism which is socially, economically,
environmentally and culturally sustainable.
3. To take a lead role in destination management by forming partnerships with
key stakeholders.
4. To facilitate regional tourism marketing and continue with enabling and
operational roles in product development.
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Strategic Aim 1:To provide and manage tourist-related infrastructure in consultation with the private sector and relevant
stakeholders.
Commentary
Local government and its associated trading enterprises plays a central role in the provision of utilities
such as district and city roads, lighting, water and sewerage, public transport systems, signs, airports
and ports and public infrastructure such as museums and art galleries, sports stadia, convention
centres, parks, gardens and other amenities. There is a need to better understand the costs and benefits
of this infrastructure in relation to tourism. Currently, some councils are facing substantial costs for the
replacement of ageing infrastructure and the development of new facilities. There is ongoing debate
over who should pay and by what means.
Outcomes we want to achieve by 2010
• Research in selected locations has identified the users and beneficiaries of local
infrastructure.
• Practical funding models have been developed to cater for infrastructure upgrades or
new development.
• Central government has clarified its policy on assisting with tourism infrastructure.
Our indicators of success
• Funding policies that are based on robust research.
• Funding systems that can be controlled by local government.
• A practical working partnership with central government over tourism infrastructure
that is in the national interest.
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Key actions to undertake (in order of priority)
Note: Lead agency refers to the agency that should coordinate that action.
Actions Lead Agency
1.1 Undertake research that will help identify the demands on local
infrastructure, and implications of the forecast growth in tourism
numbers.
Joint approach underway with
the Ministry of Tourism, Ministry
of Economic Development,
Department of Conservation,
Treasury and Internal Affairs.
1.2 Develop a ‘tool kit’ of practical models and systems for the
sustainable funding of infrastructure from rates, user charges,
development levies and central government contributions.
Recognise that these will vary from council to council depending on
the extent of tourism development within each district or region.
Local Government New Zealand
with the Ministry of Tourism
and Ministry of Economic
Development.
1.3 Clarify central government’s role in assisting with upgrading
existing and developing new tourism infrastructure.
Ministry of Tourism and Ministry
of Economic Development.
1.4 Identify destinations where there are pressing infrastructure
issues and promote these for funding by government.
Local Government New Zealand,
Territorial Local Authorities
Regional Tourism Organisations.
1.5 Advocate that tourism be included as a factor in funding models
and systems in other sectors such as roading, police, health and
environment.
Local Government New Zealand,
Tourism Industry Association of
New Zealand.
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Strategic Aim 2:To engage communities in planning for tourism which is socially, economically, environmentally and culturally
sustainable.
Commentary
The recent reviews and follow-up awareness seminars revealed that the understanding of tourism
and how it effects local communities, planning and governance varies markedly around the country.
In general, there is a need to raise the awareness of elected officials and council staff about local
government involvement in tourism. There is also a need to supplement the statutory planning
framework of the Resource Management Act with research and non-statutory tourism strategies that
better address tourism growth and its effects.
Outcomes we want to achieve by 2010
• Research on tourism demand has been carried out at regional and local levels and
integrated into statutory and non-statutory plans and policies and asset management
plans.
• Communities have articulated their tourism goals into Long Term Council Community
Plans.
• Regional tourism strategies have been prepared where needed in order to guide
development and inform statutory plans.
• Councils develop systems so that tourism is integrated across council functions.
Our indicators of success
• Completion of research that provides a better understanding of tourism demand at
regional and local levels.
• Regional tourism strategies have been integrated with statutory plans and policies
including Long Term Council Community Plans.
• Councils have adopted a ‘whole of council’ approach to tourism (recommended by
the New Zealand Tourism Strategy 2010).
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Key actions to undertake (in order of priority)
Actions Lead Agency
2.1 Identify and prioritise council research requirements for
strategic tourism planning, infrastructure and monitoring of effects.
Territorial Local Authorities and
Regional Tourism Organisations
2.2 Undertake baseline studies (in terms of infrastructure use,
costs-benefits, visitor satisfaction, preferences, activities, likes
and dislikes) for follow-up monitoring.
Regional Tourism Organisations
and Territorial Local Authorities
with the Tourism Research
Council New Zealand and
Ministry of Tourism (to input key
national level data).
2.3 Encourage the preparation of regional tourism strategies
(where needed) and assist councils and Regional Tourism
Organisations in the process with guidelines.
Local Government New
Zealand with Regional Tourism
Organisation New Zealand.
2.4 Develop a good practice guide on the Resource Management
Act and tourism.
Local Government New Zealand
2.5 Designate tourism advocates within councils to encourage
and all-of-council approach to tourism (this maybe at both senior
management and councillor level).
Territorial Local Authorities
2.6 Advocate co-ordination between Maori Regional Tourism
Groups and councils/Regional Tourism Organisations/Economic
Development Agencies.
Territorial Local Authorities and
Maori Regional Tourism Groups.
2.7 Develop a good practice approach to monitoring the economic
impact of events or other substantial tourism activities
Joint Local Government New
Zealand, Territorial Local
Authorities and Regional Tourism
Organisations with Ministry of
Tourism assistance (refer also
Action 4.8).
2.8 Continue to raise awareness of tourism for council staff
and elected officials. This would include seminars, conferences,
workshops and meetings that integrate into existing networks.
Local Government New Zealand
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Strategic Aim 3:To take a lead role in destination management by forming partnerships with key stakeholders.
Commentary
In association with the Department of Conservation, local government is the cornerstone of destination
management in New Zealand. Destination management is essentially about cross agency co-operation
in areas of planning, provision and functioning of information centres, management of infrastructure,
Regional Tourism Organisation/private sector marketing activites and site management. Much of
what is referred to as destination management involves ongoing and close liaison between key players
who manage and promote destinations within a region. Destination management encompasses
the elements of planning, provision of information, management of infrastructure, marketing and
site management and by implication, is not the sole responsibility of any single organisation. Local
government however are the brokers with the legal mandate to lead the formation of community and
industry partnerships. A co-ordinated effort by stakeholders—councils, Department of Conservation,
Iwi, Transit New Zealand, Regional Tourism Organisations—will go a long way in ensuring that
destination marketing is aligned with the management of each destination and the delivery of quality
tourism products and services.
Outcomes we want to achieve by 2010
• More effective and efficient management of destinations through improved co-ordination
of stakeholder groups. This is required at national, regional and district/city levels.
• The Visitor Information Network system continues to play an important role in the
management of destinations. Visitor Information Network offices are operating
efficiently.
• The existing sign system of Transit New Zealand is reviewed and the sign policy applied
consistently around the country.
• Councils have access to case studies and ‘best practice’ examples of the ways in which
destinations are managed in New Zealand.
• The adoption of industry improvement schemes such as Green Globe 21 becomes more
widespread in the New Zealand tourism sector.
• Clear links between destination marketing and destination management and mechanisms
for each to inform the activities of the other.
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Our indicators of success
• Co-ordinated stakeholder responses to planning hearings, submissions on plans,
development of regional tourism strategies.
• Positive feedback from visitors, residents and industry on factors such as satisfaction,
perceptions of crowding, environmental impacts, infrastructure, law and order,
distribution of costs and benefits.
• Consistent application of a revised Transit New Zealand sign policy and positive
feedback from visitors, local residents and industry.
• A whole of council approach to destination management.
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Key actions we will undertake (in order of priority)
Actions Lead Agency
3.1 Develop stakeholder partnership approaches to strengthen
the management of destinations. This could include the use of
existing committees or formation of regional, district or other
local destination management groups or Joint Committees. Long
Term Council Community Plans could also address destination
management.
Territorial Local Authorities with
Regional Tourism Organisations.
3.2 Advocate for greater national co-ordination between the
national tourism bodies and other agencies such as Transit New
Zealand. This recognises that destination management is also
required at a national level.
Local Government New Zealand
3.3 Continue to support quality improvement and funding of the
Visitor Information Network system and advocate for improved
financial performance.
Territorial Local Authorities and
Visitor Information Network Inc.
3.4 Advocate for a review of the Transit New Zealand sign system
for tourist attractions.
Local Government New Zealand
3.5 Promote consistent application of Transit New Zealand’s Tourist
Signage Policy.
Territorial Local Authorities and
Local Government New Zealand.
3.6 Encourage tourism operators to consider participating in
industry improvement schemes.
Regional Tourism Organisations
and Economic Development
Agencies.
3.7 Develop a website-based collection of destination management
case studies that will serve to inform councils of options that are
available to them.
Local Government New Zealand
with the Ministry of Tourism and
assistance from Regional Tourism
Organisations.
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Strategic Aim 4:To facilitate regional tourism marketing and continue with enabling and operational roles in product
development.
Commentary
Local government plays a key role in enabling regional tourism marketing through funding of Regional
Tourism Organisations. Local government is perhaps the largest ‘tourism operator’ in the country in
that it provides most of the country’s museums, parks, gardens, sports stadia and events. It also assists
with the development of new products through the work of Regional Tourism Organisations and
Economic Development Agencies and BIZ Centres.
Outcomes we want to achieve by 2010
• Certainty of long-term funding for Regional Tourism Organisations.
• Continued close working partnership between councils and Regional Tourism
Organisations.
• A strong relationship between Regional Tourism Organisations and Tourism New
Zealand that keeps councils abreast of trends in international and domestic tourism.
• Establish clear pathways to information, advice and funding for existing or new tour
operators.
Our indicators of success
• Long-term funding agreements for Regional Tourism Organisations.
• Establishment of a national secretariat or similar for Regional Tourism Organisations.
• Positive feedback from relevant council staff, Board members of Regional Tourism
Organisations and industry on the level of coordination between Regional Tourism
Organisations, Economic Development Agencies, councils and Tourism New Zealand.
• Clear accountabilities and constructive relationships between each Regional Tourism
Organisation and their funding councils.
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Key actions we will undertake (in order of priority)
Actions Lead Agency
4.1 Establish a flexible model approach to long-term funding
contracts with Regional Tourism Organisations (for instance, rolling
budget with regular reviews).
Regional Tourism Organisations
New Zealand and Local
Government New Zealand.
4.2 Encourage national co-ordination of the Regional Tourism
Organisations as an important sector group.
Territorial Local Authorities and
Local Government New Zealand.
4.3 Advocate for increased regional collective efforts for
international marketing where benefits can be clearly identified.
Territorial Local Authorities,
Regional Tourism Organisations
and Local Government New
Zealand.
4.4 Develop a range of options that reflect local needs for
structuring Regional Tourism Organisations and other local
marketing activities.
Regional Tourism Organisation
New Zealand and Local
Government New Zealand.
4.5 Develop processes for interaction between Regional Tourism
Organisations and Tourism New Zealand to assess strategic
alignment of Tourism New Zealand and Regional Tourism
Organisation international marketing activities.
Regional Tourism Organisations
and Tourism New Zealand
4.6 Encourage alignment of Regional Tourism Organisation and
Tourism New Zealand destination marketing with the work of
destination management groups.
Regional Tourism Organisations
and Territorial Local Authorities
(refer also Action 3.1).
4.7 Coordinate provision of information on funding and technical
advice for existing and new tour operators in relation to product
development or enhancement.
Regional Tourism Organisations
and Economic Development
Agencies.
4.8 Clarify procedures, roles and responsibilities for running,
promoting and measuring the benefits from significant council
funded events.
Territorial Local Authorities,
Regional Tourism Organisations
and Economic Development
Agencies.
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Appendix 1Recommendations for local government from the New Zealand Tourism Strategy 2010 (abridged).
Recommendation Local government response
1. By July 2002, a new public/private organisation is
established to lead international branding and marketing.
Its Board will be governed by representatives from central
government, Local Government New Zealand on behalf
of Territorial Local Authorities and NewRegional Tourism
Organisations, Tourism Industry Association of New Zealand
on behalf of industry.
Tourism New Zealand has been given an
enhanced partnership mandate to guide its
international promotion of New Zealand as
a tourism destination. The private sector
is now formally consulted on Tourism
New Zealand’s proposed strategies, plans
and projects. Tourism stakeholders are
invited to nominate appointments to the
Tourism Board through publicly advertised
vacancies. Regional Tourism Organisations
maybe best represented by their own
secretariat.
4. By mid 2002, NewRegional Tourism Organisations will be
established and take an enhanced role in destination marketing
and management, domestic and international marketing,
regional tourism planning and development and facilitating
provision of services to tour operators.
Local government has the mandate
for tourism planning and destination
management. Regional Tourism
Organisations are well placed to feed into
those responsibilities. Regional Tourism
Organisations would continue with their
marketing function, liaison with industry
members and are the ideal conduit
between Tourism New Zealand and local
government.
5. Local government builds stronger links with NewRegional
Tourism Organisations and increases funding and certainty by
July 2002.
Agree – refer Action 4.1.
11. Adoption of a whole-of-sector model to reduce complexity
and improve efficiency in tourism planning and development
by 2004. This will be led by Local Government New Zealand
with Territorial Local Authorities, iwi and others.
To be considered by Local Government
New Zealand.
22. Adopt the Visitor Information Network strategy. Underway within Tourism New Zealand.
24. NewRegional Tourism Organisations work closely with
regional and local government to closely align destination
marketing and destination management.
Agree – refer Actions 3.1 and 4.6.
25. A working group of NewRegional Tourism Organisations
develops detailed options and recommendations for Regional
Tourism Organisation functions, including the reduction of the
existing 25 Regional Tourism Organisations.
Agree – presently underway. The Regional
Tourism Organisation response to this
recommendation continues to evolve.
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26. A working group of Regional Tourism Organisations
investigate a shared back office business case for common
functions most efficiently undertaken on a joint basis.
Currently underway.
27. By mid 2002, Territorial Local Authorities and central
government confirm their long-term commitment to the
tourism sector and confirm infrastructure.
Underway – this strategy forms part of that
process.
40. Central and local government and the private sector
develop a model and agree on roles and responsibilities in
relation to tourism infrastructure needs.
Agree – this process has started and this
strategy forms part of the clarification of
roles and responsibilities.
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Appendix 2Members of the Local Government New Zealand Tourism Project Team
Sukhi Turner (Chair) Mayor of Dunedin
Jim Harland Dunedin City Council
Clive Geddes Mayor of Queenstown
Mary Bourke Mayor of South Taranaki
Paul Matheson Mayor of Nelson
Sue Piper Wellington City Council
Jim Archibald Tourism Coromandel
Peter Yeoman Environment Canterbury
John Tregidga Hauraki District Council
Kim Kelly Hutt City Council
Stuart Grant Kaikoura District Council
Charles Roberts Rotorua District Council
Diane Ridley Southland District Council
Sue Anderson Southland District Council
Jeff Troon Venture Southland
Annette Main Horizons.mw
Simon Douglas Ministry of Tourism
Katherine Lowe Ministry of Tourism
John Moriarty Tourism Industry Association New Zealand
David Barnes Tourism Industry Assocation New Zealand
David Wilks Tourism New Zealand
Bev Abbott Tourism New Zealand
Tim Davin Local Government New Zealand
Angela Gore Local Government New Zealand
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Postcards from HomeThe Local Government Tourism StrategyMay 2003
effective local governance
Local Government New Zealand
PO Box 1214, Wellington, New Zealand
phone: 04 924 1200, fax: 04 924 1230
email: [email protected], www.lgnz.co.nz
ISBN 1-877144-03-7