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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.


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.


• 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.


• 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.


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.


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.


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.


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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.


• 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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• 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.


3.3 Continue to support quality improvement and funding of the

Visitor Information Network system and advocate for improved

financial performance.


Visitor Information Network Inc.

3.4 Advocate for a review of the Transit New Zealand sign system

for tourist attractions.


3.5 Promote consistent application of Transit New Zealand’s Tourist

Signage Policy.


Local Government New Zealand.

3.6 Encourage tourism operators to consider participating in

industry improvement schemes.


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.


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.


• 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.


• 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).


New Zealand and Local

Government New Zealand.

4.2 Encourage national co-ordination of the Regional Tourism

Organisations as an important sector group.


Local Government New Zealand.

4.3 Advocate for increased regional collective efforts for

international marketing where benefits can be clearly identified.

Territorial Local Authorities,


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.


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.


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.



Agencies.

4.8 Clarify procedures, roles and responsibilities for running,

promoting and measuring the benefits from significant council

funded events.

Territorial Local Authorities,



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


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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