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DESTINATION STEWARDSHIP COUNCIL DRAFT TERMS OF REFERENCE · Report
GENERAL COMMITTEE MEETING 6 OCTOBER 2026
7.2.3 DESTINATION STEWARDSHIP COUNCIL DRAFT TERMS OF
REFERENCE
Author Economic Development Manager, Lynne Banford
Economic Development and Destination Management | Strategy and
Environment
Index 71.01 - Tourism Noosa
Attachments 1. ATTACHMENT 1 DSC Draft TOR Oct 26
2. ATTACHMENT 2 Draft DSC Risk Register
EXECUTIVE SUMMARY
In December 2025, Council endorsed the Noosa Destination Management Plan (DMP), a 10-year
roadmap for a sustainable destination that balances community wellbeing, environmental
stewardship and economic resilience. The DMP identifies the establishment of a Destination
Stewardship Council (DSC) as a key action to support implementation of the Plan.
The Destination Stewardship Council (DSC) is proposed to be established to oversee and support
the delivery of priority actions and outcomes under the Noosa Destination Management Plan (DMP),
with a particular focus on initiatives that rely on shared responsibility and action across government,
industry, community and environment organisations and the broader community.
Acting as a key stewardship body for DMP implementation, the DSC is intended to provide strategic
oversight of progress, performance and outcomes through the Monitoring and Evaluation
Framework. It is intended to leverage the collective expertise, leadership and influence of its
members to champion priority actions, facilitate cross-sector collaboration, address barriers to
implementation, and drive accountability for the delivery of agreed DMP outcomes.
A draft Terms of Reference has been developed following research into destination stewardship best
practice, consultation with Tourism Noosa, Councillor workshops and review by Council's
Governance team. The Draft Terms of Reference establish the DSC's purpose, potential
membership and governance arrangements. Once established the DSC will have an opportunity to
refine and adopt their final Terms of Reference.
This report seeks Council's endorsement of the Draft Terms of Reference and authorisation to
commence recruitment and establishment of Noosa's inaugural Destination Stewardship Council.
RECOMMENDATION
That Council
A. Note the report by the Director Environment and Strategy and Manager Economic
Development and Destination Management to the General Committee Meeting dated 6
October 2026 regarding the Destination Stewardship Council draft Terms of Reference;
B. Endorse the Draft Terms of Reference for the Noosa Destination Stewardship Council as at
Attachment 1, establishing its purpose, functions, membership and governance
arrangements to support delivery of priority actions within the Noosa Destination
Management Plan; and
C. Authorise the establishment of the Noosa Destination Stewardship Council, including
recruitment and appointment processes in accordance with the Draft Terms of Reference.
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026 REPORT 1. BACKGROUND AND CONTEXT 1.1 Background In December 2025, Noosa Council endorsed the Noosa Destination Management Plan (DMP), a 10- year roadmap centred on community wellbeing. The DMP seeks to ensure tourism enhances and protects Noosa’s environment, lifestyle and values while supporting a prosperous and resilient economy. The DMP identifies priorities and actions to build a sustainable visitor economy and proactively respond to key challenges associated with Noosa’s growing popularity, including population growth, increasing visitation, evolving travel behaviours, and the impacts of climate change on the destination. This is done so under four priority Guiding Principles: 1. Respecting the Community 2. Leading the Way 3. Living our Values 4. Tourism for Good 1.2 Establishment of Destination Stewardship Council key action of DMP The establishment of a Destination Stewardship Council (DSC) is identified in the Noosa Destination Management Plan (DMP) as a priority action under Guiding Principle 2: Leading the Way. Council endorsed the establishment of the DSC as a priority action to provide a dedicated leadership, oversight and accountability mechanism for the delivery of the DMP's priority actions and outcomes. The DSC is intended to help ensure that the DMP moves beyond strategy into implementation, maintaining focus on progress, fostering shared ownership of outcomes, and supporting coordinated action across the government, organisations and sectors required to achieve the Plan's objectives. The DSC is intended to serve as a key stewardship body to provide strategic leadership, oversight and advice for implementation of the DMP. The DSC is intended to have a key role in monitoring progress and performance, identifying and addressing barriers to delivery and helping maintain focus on achieving agreed destination outcomes. Recognising that some DMP actions extend beyond Council's direct jurisdiction, authority or resources, the DSC also leverages the collective leadership, expertise, influence and networks of its members to mobilise partners, align effort and advance priority actions across government, business and industry, environmental, community organisations and the community. This report presents a Draft Terms of Reference, together with the proposed membership framework and establishment process, for Council's consideration.
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
1.3 Development of the Draft Terms of Reference
The Draft Terms of Reference were informed by research into destination stewardship governance
models and recognised best-practice approaches used by comparable destinations and advisory
bodies.
The draft was subsequently refined through consultation with Tourism Noosa, a Councillor workshop
(10th August 2026) and further detailed Councillor feedback and, was review by Council's
Governance team.
Feedback from each stage was incorporated into the final draft Terms of Reference attached as
Attachment 1 for Council's consideration and endorsement.
The Draft Terms of Reference proposes to establish the DSC as a strategic advisory body
responsible for guiding, monitoring and championing implementation of the Destination Management
Plan.
Key features include:
• Proposed Independent chair appointed by Council.
• Representation from community, business and industry, government and strategic
stakeholder organisations and the process by which they will be recruited to the DSC.
• Clear governance, accountability and conflict-of-interest provisions.
• Mechanisms for collaboration, advocacy and stakeholder engagement.
• Periodic review of membership, performance and effectiveness.
The Draft Terms of Reference ensure the DSC can provide informed, evidence-based advice while
recognising that Noosa Council retains its local statutory decision-making authority.
Destination Stewardship Council Recruitment
On the recommendation of officers and selection by Council, an independent Chair is proposed to
be appointed to the role by the mayor.
It is recommended that a highly credible and impartial leader with demonstrated experience in
governance, stakeholder stewardship and facilitating complex, multi-stakeholder environments
would best suit the role of the Chair.
Alongside the appointment of the Chair, membership will be established through a combination of
targeted invitations and an Expression of Interest process. Organisational members will be invited
from key partner organisations and agencies identified in the Draft Terms of Reference, with
nominees expected to hold senior leadership, governance or decision-making roles and possess the
authority to represent their organisation.
Two community representatives will be selected through a public Expression of Interest process.
Community members will be assessed against criteria including their understanding of the Noosa
community, connections across the community, ability to represent broader community perspectives,
and capacity to think strategically about destination-wide outcomes.
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026 Final membership will be determined based on the capacity of individuals and organisations to contribute to the implementation of the Destination Management Plan, ensuring a balanced mix of expertise, influence, governance capability and community insight. Subject to the endorsement of the Draft Terms of Reference by Council, initial recruitment of the Destination Stewardship Council is proposed to commence prior to Christmas, with the establishment of an initial DSC anticipated to be completed in the first qtr of 2027. 2. SUMMARY The Noosa Destination Management Plan (DMP) identifies the establishment of a Destination Stewardship Council (DSC) as a key action to support effective implementation of the Plan. During consideration of the DMP in December 2025, Council endorsed the establishment of the DSC as a priority action and requested the preparation of a Terms of Reference for its consideration, along with a draft Risk Register (please see Attachment 2). In response, officers have developed a draft Terms of Reference informed by destination stewardship best practice, consultation with Tourism Noosa, Councillor workshops and review by Council's Governance team. The Draft Terms of Reference establish the DSC's purpose, membership, governance arrangements, operating model and responsibilities, including oversight of the DMP Monitoring and Evaluation Framework. Endorsement of the Draft Terms of Reference will provide the framework necessary to establish the DSC and enable officers to commence recruitment processes for Noosa's inaugural Destination Stewardship Council. In response to Motion F of the December 2025 Council resolution of the DMP, an initial draft Risk Register has been initiated and will be reviewed and monitored once the DCS is established. The register identifies initial risks associated with the establishment of the DSC and delivery of the DMP. It is intended to be a living document that will be regularly reviewed and updated by the DSC as part of its oversight of DMP implementation, risk management and priority action delivery. Link to Corporate Plan Theme No. 3 - Prosperity Focus areas include economic development, local business, innovation, arts and culture, waste and a circular economy 3.1 Deliver and fund the Smart Biosphere - Economic Strategy Theme 4 – Future Focused on our future, strengthening our relationship with First Nations peoples and to ensure our community is prepared and resilient to change. A focus on youth, climate resilience and adaption, sense of place and destination management. 4.2 Complete and implement the Destination Management Plan
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
Previous Council Consideration
Ordinary Meeting, 18 December 2025
11.3.3 ADOPTION OF DESTINATION MANAGEMENT PLAN
That Council
A. Note the report by the Director Environment and Strategy and Manager Economic
Development and Destination Management to the General Committee dated 15
December 2025;
B. Endorse the Destination Management Plan (DMP) – For the Love of Noosa - provided at
Attachment 1;
C. Note the Draft Implementation plan, provided at Attachment 2, to support the
implementation of the DMP, noting this plan will be refined with input from
partner/support organisations, reviewed and updated on and annual basis and
informed by Council’s annual budget considerations;
D. Delegate authority to the CEO to make minor changes or amendments to the DMP and
associated appendices if required prior to designing and publishing final documents on
Council’s website;
E. Amend the heading in the final column of the Monitoring and Evaluation Framework to
read: "Potential Measures.” ;
F. Establish a DMP Delivery Risk Register and include in the Terms of Reference for the
Destination Stewardship Council (DSC) and report to Council annually as part of the
annual review. The register will outline delivery risks, dependencies, resource
constraints, and mitigation strategies;
G. Ensure that any action likely to materially affect local business activity or the amenity of
nearby residents including paid parking, congestion charging, one way corridor trials or
precinct closures, be subject to an engagement with affected sectors before Council
decision;
H. Amend the DMP to include a clear objective for the economic management of the visitor
economy, supported by defined strategies, actions and measurable outcomes;
I. Amend the DMP to include an action that proposes the development of a Council
Advocacy and Partnership Strategy to support implementation of the plan;
J. Endorse the establishment of a Destination Stewardship Council (DSC) as a priority
action to support implementation of the Destination Management Plan, with its
purpose to provide oversight, monitoring and evaluation, guidance and transparency. A
Terms of Reference be prepared outlining the process for establishing the Destination
Stewardship Council and report back to Council for consideration be provided as the
first priority following adoption of the Destination Management Plan; and
K. Ensure that during implementation, monitoring and review of the Noosa Destination
Management Plan, Council officers engage with appropriate independent experts and
key stakeholders to further refine the Plan’s strategic settings, assumptions, and
delivery approach, ensuring it remains responsive to changing economic conditions,
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
State policy and regulatory settings, market dynamics, delivery risks and emerging
strategic opportunities.
Special Meeting, 14 August 2025
4.1 DESTINATION MANAGEMENT PLAN – PHASE 2 ENGAGEMENT
That Council
A. Note the report by the Manager Economic Development and Destination Management
to the Special Meeting dated 4 August 2025, regarding the Destination Management
Plan;
B. Approve the Draft Destination Management Plan provided as Attachment 1 for the
purposes of community engagement for a six-week period between 6 August and 14
September 2025;
C. Note the community engagement plan provided as Attachment 2 to this report, outlining
the range of activities and approaches to enable broad community awareness and
feedback on the Draft Destination Management Plan;
D. Delegate the CEO to make minor changes or amendments as required to the Draft
Destination Management Plan prior to community engagement process
commencing; and
E. Note that while Measures of Success have been identified in the current report, further
community input will be sought to help define what success looks like from the
community’s perspective. This feedback will inform the development of a
comprehensive monitoring and evaluation framework which will be delivered alongside
the final Destination Management Plan (DMP) in November/December.
Ordinary Meeting, 14 December 2023
SUMMARY OF COMMUNITY ENGAGEMENT PROCESS AND KEY THEMES – DESTINATION
MANAGEMENT PLAN DISCUSSION PAPER
That Council, note the report by the Manager, Economic Development and Destination Management
to the Ordinary Meeting dated 14 December 2023 regarding the process to develop a Noosa Shire
Destination Management Plan and;
A. Note the summary of consultation key themes and feedback received during the recent
community engagement process on the DMP Discussion Paper;
B. Note the proposed next steps as detailed in the report for officers to undertake a deep
analysis of the data and feedback provided to date to inform the preparation of a draft
DMP early to mid-2024;
C. Prepare and implement a communication plan to clearly inform the community of the
key themes from the community to date and outline the next steps in the DMP process;
D. Add a specific step into the process that workshops the results of the consultation on
the DMP Discussion Paper with the External Community Reference Group and the
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
external members of the PCG, to inform the scope of the next steps in the process of
communicating back to the community and the Draft DMP; and
E. Note the draft DMP will be prepared early in 2024 and reported back to Council for
further community engagement in mid-2024.
Finance
Funding for the ongoing implementation of the DMP will be subject to Council’s annual budget
processes.
In FY26/27, Council approved $70,000 for activation of Destination Management Projects, including
costs associated with the establishment of the Destination Stewardship Council and initial design of
the For the Love of Noosa Program.
Risk & Opportunities
Risk (also included in attached Draft Risk Register Attachment 2)
Risk Likelihood Potential Impact Mitigation
Difficulty securing Unlikely An insufficiently qualified Develop a skills-based
a suitably and influential chair could framework aligned to the
qualified Chair undermine the credibility of Terms of Reference.
with gravitas. the DSC from its
establishment by reducing Undertake targeted
stakeholder willingness to identification of potential
participate. candidates.
Assess candidates’
independence and conflict of
interest requirements.
Offer appropriate
remuneration and ensure
expectations are clearly
articulated before formal
invite.
Key Unlikely The DSC may struggle to Invite organisations rather
organisations progress DMP priorities if than individuals where
decline members cannot commit appropriate
participation or organisational support to the
nominate level required. Invites to come from Mayor
representatives on behalf of Council
without sufficient
authority and Engage at Board, CEO, DG
gravitas. or DDG Level to make invite
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
Clearly articulate expectations
of seniority and influence
Clearly articulate time
commitment
DSC members Possible Meetings may become Establish strong governance
pursue dominated by member through the Terms of
organisational or organisations specific Reference
sector interests ‘position’ or outcomes
over collective advocated by their Independent Chair to facilitate
destination organisation. This may balanced discussion
outcomes reduce collaboration and
limit the DSC’s ability to Require declarations of
provide strategic interest on Agenda items
stewardship of the DMP.
Reinforce members role and
obligations to act in the
interest of Noosa’s
destination outcomes
Regularly review
effectiveness and member
contributions
Community Likely Community trust of Council Implement a Communication
perception that may be reduced, leading to Plan to ensure clarity on the
the DSC is criticism that the DSC exists role of the DSC.
tourism-led rather to promote tourism growth
than destination- rather than balance Ensure balanced
led. environmental, social, representation across DSC
cultural outcomes envisaged
by the DMP. Appoint respected community
representatives
Community Possible Perceived lack of Implement a transparent EOI
criticism of transparency in appointment process for community
member selection of DSC members could members
and undermine its legitimacy and
representation create tension between DSC Publish selection criteria
and sections of the
community. Through Communication Plan
provide clear rationale for
appointments
Ensure selected community
representatives are appointed
based on their ability to
represent broader community
perspectives than advocacy
on single, individual issues.
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
Opportunity
Opportunity Likelihood Potential Benefit Realisation Strategy
Improved Likely Brings together decision- Ensure skills based
engagement and makers from government, representation from
coordination community, business, organisations with genuine
across environment and tourism influence and decision-making
organisations that and provides a mechanism authority
can influence to address complex
positive destination challenges that no single Maintain a strong focus on
outcomes for organisation can solve implementation and action
Noosa alone.
Accelerated Likely DSC Members can mobilise Focus meetings on
implementation of resources, networks, implementation, accountability
the Destination expertise and and measurable outcomes
Management Plan organisational commitment rather than information
beyond Council's direct sharing.
control, helping deliver
actions that would
otherwise be difficult to
achieve.
Increased ability to Possible A DSC creates a powerful Leverage the collective
influence DMP and unified voice when influence of DSC members
outcomes and advocating to State and and develop shared positions
aspirations Federal Governments and on Noosa’s priority challenges
other agencies on Noosa’s as outlined in the DMP.
priorities – such as
affordable workers housing,
connected transport,
improved infrastructure and
managing impacts in key
destination locations.
Stronger Likely The DSC provides a forum Use the Monitoring and
stewardship of to balance community Evaluation Framework (MEF)
Noosa’s future wellbeing with to track outcomes and support
social, environmental protection evidence-based decision
environmental, and economic prosperity, making.
business and helping Noosa to maintain
cultural the qualities and
aspirations, as characteristics that make
identified in the Noosa distinctive.
DMP
Greater (broader) Possible / The DSC demonstrates that Maintain balanced skills based
community Likely delivery of the DMP is membership including
confidence in guided by a broad range of community representatives
Noosa’s DMP interests rather than Council with gravitas.
implementation or the tourism industry
alone, strengthening
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GENERAL COMMITTEE MEETING 6 OCTOBER 2026
transparency and improving Communicate outcomes and
social licence. progress to the community
regularly.
Human Rights
Human Rights Compatibility Statement
In developing this Report, the subject matter has been considered in accordance with the
requirements of the Queensland Human Rights Act 2019. It is considered that the subject matter
does not conflict with any human rights and supports a human rights approach to decision making
by Council. Council representatives will endeavour to act and make decisions under this report in a
manner that is compatible with human rights. This report should be read in conjunction with
Council’s Human Rights Policy.
Consultation
External Consultation - Community & Stakeholder
• Comparative analysis global best practice examples of Destination Stewardship Council’s
processes and criteria (presented to Councillors during 10 August workshop)
• Tourism Noosa, CEO
Internal Consultation
Departments consulted:
Office of the CEO, Mayor & Community Services Corporate Services
Councillors
x Mayor & Councillors Director Director
x Chief Executive Officer Community Connection Financial Services
Executive Officers Sport & Active Lifestyles Revenue Services
Community Engagement Arts & Culture ICT
x Governance Customer Experience Procurement
People & Culture
Strategy & Environment Development & Regulation Infrastructure Services
x Director x Director Director
Strategy & Sustainability Development Assessment Civil and Asset operations
x Economic Development & Infrastructure Planning, Design
Local Laws
Destination Management and Delivery
Environmental Services Environmental Health Waste
Innovation & Digital Hub Building & Plumbing Building & Facilities
Commercial Property Property / Permits Disaster Management
Fleet