NOOSA JUNCTION PRECINCT MANAGEMENT MODELS ASSESSMENT · Report

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the vitality and sustainability of local businesses and Noosa Junction as Major Activity Centre.

CURRENT REGULATORY ARRANGEMENTS

Office of Liquor and Gaming
In Queensland, the regulation of noise associated with licensed venues is governed by a framework
administered by the Office of Liquor and Gaming Regulation (OLGR) under the Liquor Act 1992.
Licensed venues are required to adhere to specific noise conditions outlined in their liquor licence,
which are designed to ensure that noise generated by entertainment activities, patron behaviour,
and mechanical equipment (such as air conditioning units and generators) does not unreasonably
impact surrounding residents or businesses. These requirements are generally consistent with the
planning scheme requirements.

Effective noise management is a critical component of venue compliance, and licensees are
expected to implement appropriate mitigation measures to prevent disturbances. Failure to comply
with these conditions may result in enforcement action undertaken by OLGR, including penalties or
restrictions on trading conditions.

Collaborative Approach to Liquor Management (CALM ) Noosa Liquor Accord
Under Queensland’s Liquor Act 1992, licensees have a legal obligation to minimise harm associated
with alcohol misuse and related violence. In support of this objective, many communities across
Queensland have established liquor accords—voluntary partnerships involving licensed venues,
community organisations, law enforcement, and government agencies. These accords aim to foster
collaboration and implement practical strategies to enhance safety and reduce alcohol-related harm
in and around licensed premises.

The CALM Noosa Liquor Accord, which has been operating for approximately 15 years, covers the
entirety of the Noosa Shire. Its primary purpose is to promote responsible service of alcohol and
reduce alcohol-related incidents. The Accord currently comprises around 50 members, the majority
of whom represent local licensed venues.

Council is not a formal member of the Accord, however a representative from the OLGR regularly
attends meetings to provide regulatory insight and support collaborative efforts.

Noosa Plan 2020
Noosa Plan 2020 includes specific provisions aimed at managing the interface between
entertainment venues and residential development within and surrounding the Noosa Junction area.
These provisions include restrictions on hours of operation and amplified music for entertainment
venues, as well as requirements for acoustic attenuation in new residential developments located
adjacent to the Major Centre zone.

These measures are intended to protect residential amenity while supporting the continued vibrancy
of the Noosa Junction Hospitality Precinct. It is important to note that these provisions are not
retrospective and therefore apply only to new development applications submitted after the adoption
of the scheme. It is also noted that a majority of venues in Noosa Junction operate under existing
use rights or have interchangeable approvals, which would not require an application should the
venue change ownership or use type (eg changing from a shop to a restaurant).

PRECINCT MANAGMENT FRAMEWORKS

This report presents an overview of an investigation into potential frameworks to support and
manage live music and entertainment activities within Noosa Junction. In response to ongoing
interest from stakeholders and the community, Council has investigated several models—each with
distinct regulatory, operational, and financial implications. These include the Special Entertainment
Precinct (SEP), Safe Night Precinct (SNP), Harmony Project pilot, and Business Improvement
District (BID). The purpose of this report is to outline the key features, benefits, and challenges of

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each model to inform future strategic planning and decision-making. A comparison table
summarising these options is provided in Attachment 1.

The investigation into potential precinct models involved the following steps:
   1. Legislative Review - Analysis of relevant legislation including the Local Government Act
      2009, Liquor Act 1992, and Tackling Alcohol-Fuelled Violence Legislation Amendment Act
      2016 to determine statutory requirements and implications for Council.
   2. Case Study Analysis - Review of existing precincts across Queensland (e.g., Nambour SEP,
      Fortitude Valley SNP) and Australia (Sydney Waterfront BID) to identify best practices,
      operational models, and outcomes relevant to Noosa Junction.
   3. A brief Feasibility Assessment- Evaluation of each model’s suitability for Noosa Junction,
      considering local context, regulatory burden, funding availability, and community impact.
   4. Cost and Resource Implications - Estimation of financial and staffing requirements
      associated with each option, including potential funding sources and governance structures.
   5. Comparative Analysis - A comparison table (Attachment 1) has been developed to
      summarise the key attributes, benefits, and limitations of each model to support informed
      decision-making.

Special Entertainment Precinct
Under the Local Government Act 2009, a council may formally designate a Special Entertainment
Precinct (SEP) within its jurisdiction. This designation enables entertainment venues within the
precinct to be exempt from the amplified music noise provisions of the Liquor Act 1992, transferring
regulatory responsibility for amplified music noise emissions to council. It is important to note that
venues must still comply with all other requirements associated with obtaining and maintaining a
liquor licence.

To establish a SEP, council must undertake two key actions:
   •   Amend Noosa Plan 2020 to identify the SEP and incorporate any specific provisions relevant
       to its operation.
   •   Enact a new Local Law to regulate noise from amplified music within the precinct. This law
       generally includes a permit system for venues, which typically involves an annual licensing
       fee.
This framework could provide council with greater flexibility to support live music and entertainment
in the Junction, while managing potential land use conflicts in a locally responsive manner. However,
this framework shifts all the regulatory responsibility to Council from State Government and has
significant resource implications as described in Attachment 1.

Safe Night Precinct
Safe Night Precincts (SNPs) are designated areas established under the Liquor Act 1992 and
the Tackling Alcohol-Fuelled Violence Legislation Amendment Act 2016 as part of the Queensland
Government’s broader strategy to reduce alcohol-related harm in key entertainment districts. These
precincts—located in areas such as Brisbane and the Sunshine Coast—aim to promote responsible
consumption of alcohol, reduce late-night violence, and enhance public safety in and around licensed
venues.

Key features of SNPs include:
   •   Ministerial Oversight: The Minister for Liquor Regulation is responsible for recommending the
       establishment of SNPs and appointing the corresponding local board. Each SNP is subject
       to a formal review every three years to assess its effectiveness and determine whether
       adjustments are required

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   •   Regulatory Framework: SNPs are governed by the Liquor Act 1992 and regulated by the
       OLGR, which oversees compliance with liquor licensing laws and precinct-specific
       requirements
   •   Local Board Management: Each SNP is managed by a local board, constituted as an
       incorporated association. These boards are responsible for the day-to-day management of
       the precinct, including the development and implementation of initiatives aimed at improving
       community safety and reducing alcohol-related harm
   •   Funding Support: SNPs receive financial support through seed and operational funding
       pools, which assist with the establishment and ongoing operation of the precincts
   •   Law Enforcement: The Queensland Police Service plays a critical role in maintaining order
       within SNPs, working collaboratively with local boards and the OLGR to address incidents of
       violence, anti-social behaviour, and non-compliance with liquor laws
Key stakeholders have indicated that pursuing the establishment of a Safe Night Precinct in Noosa
Junction is not a priority at this time. This decision is based on the current assessment that there is
no demonstrated need for such a precinct, coupled with significant constraints in available resources,
including staffing and funding.

Harmony Project
The University of the Sunshine Coast’s Harmony Project explored the evolving dynamics of nightlife
in the region, with a focus on challenges such as noise and anti-social behaviour. In 2024, Council
was approached by USC to participate in a proposed pilot project focused on Noosa Junction.

The pilot aims to trial a three-month moratorium on existing noise restrictions for live music within
the Junction, providing a temporary exemption from current licensing conditions. This would require
formal agreement from the OLGR to suspend their noise compliance requirements for the duration
of the trial—a condition that may prove difficult to secure, particularly in light of recent compliance
actions in the area.

Although the pilot was not progressed due to USC’s inability to secure grant funding, the concept
remains of interest. The estimated cost of the trial was approximately $20,000, and any future
consideration would require exploration of viable funding sources and stakeholder support.

Business Improvement District

A Business Improvement District (BID) is a globally recognised model for enhancing the economic
vitality and public realm of commercial precincts. Originating in North America and widely adopted
across the UK, Europe, and parts of Australia (notably New South Wales and Victoria), the BID
framework enables businesses within a defined area to collectively fund and manage initiatives that
support local growth and vibrancy. While not currently legislated or formally applied in Queensland,
the model offers a structured and adaptable approach that aligns with the provisions of the Local
Government Act 2009, particularly around transparency, accountability, and governance.

A defining feature of the BID model is its levy-based funding mechanism, where participating
businesses contribute to a shared fund. This fund supports services and projects that go beyond
those already provided by local government, such as placemaking, marketing, safety improvements,
and economic development initiatives. These objectives closely mirror existing collaborative efforts
in Noosa Junction, where a levy is already collected, and Council and local businesses work together
to enhance the precinct’s appeal.

Establishing a BID in Noosa Junction would require strong support from local businesses, with
survey requiring a majority vote in support of entering into a BID, similar to what is required for special
area levy under the LG Act process, is typically needed to proceed. A critical step in the process
would be the development of a Junction Business and Precinct Management Plan and associated
budget. This plan would outline the scope of services and initiatives to be delivered through the BID

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Framework, which must be clearly distinguished as being over and above those already provided by
council.

Given its alignment with current local practices and its potential to provide a sustainable, business-
led funding and delivery model, the BID concept presents a valuable framework for further
investigation into its applicability and benefits for Noosa Junction.

RECOMMENDED OPTION AND CONCLUSION

In response to the Notice of Motion endorsed by Council and the subsequent investigation into
precinct management frameworks for Noosa Junction, it is recommended that Council support
further exploration into the potential establishment of a locally adapted model based on the Business
Improvement District (BID) framework within the Noosa Junction Hospitality Precinct.

This report has directly addressed the key elements outlined in the Notice of Motion. It includes a
review of best practice models from other jurisdictions, including reviewing the Nambour SEP and
BID frameworks implemented in New South Wales. It also considers the precinct management goals
of prioritising noise control, safety and security to create a family friendly environment in the junction.
The investigation has been informed by consultation with Sunshine Coast Council and Griffith
University, including insights from academic research and relevant legislative frameworks. These
inputs have shaped the recommendation to explore a BID-style approach tailored to the Noosa
Junction context.

The BID model presents a strategic and cooperative framework for managing the precinct,
empowering local businesses to jointly invest in initiatives that boost the area's vibrancy, safety, and
long-term economic resilience. This approach aligns with Council’s Corporate Plan priorities and
offers a potential pathway to address persistent land use tensions between hospitality venues and
nearby residents in a more integrated and sustainable manner.

As part of the further investigation process, Council may explore opportunities to participate in pilot
projects, being either the University of the Sunshine Coast’s Harmony Project, or other similar
projects. These pilots could serve as valuable test cases for innovative precinct management
strategies. While the original Harmony Project pilot was not progressed due to funding constraints,
its concept remains relevant and could be revisited under the BID type framework, subject to
securing appropriate support from affected businesses and regulatory bodies such as the OLGR.

While not currently legislated in Queensland, the BID framework provides a strong foundation for
locally tailored implementation. Establishing such a model would likely involve a multi-stage process,
including:
   •   Initial stakeholder engagement to test interest and feasibility
   •   Development of a precinct-specific business plan and budget
   •   Design of a governance structure and funding model
   •   Formal consultation and endorsement process
The timing for this initiative would depend on stakeholder readiness and resource availability,
however a preliminary phase - including engagement and concept testing - could be initiated within
the next 6–12 months. Budget and resource implications would need to be carefully considered,
particularly around staffing to support coordination, facilitation, and plan development. Initial costs
may include consultancy support, stakeholder workshops, and communications, with funding
potentially sourced through existing budget allocations or external grants.

To advance this concept, it is recommended that initial discussions be held with key stakeholders,
including local business owners, precinct representatives, and relevant Council departments. These
conversations will help test the appetite for a BID-style approach and identify support or otherwise

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within the community. Subject to this process, further consideration would then need to occur on
resource and budget requirements and funding sources prior to progressing any further.

Should this concept be supported by stakeholders and Council, and appropriate funding source
identified a formal feasibility study could then be completed to explore governance, funding, and
implementation pathways in more detail.
This staged approach ensures that any future precinct management model is grounded in local
context, supported by stakeholders, and aligned with Council’s strategic objectives.

This framework provides the potential for a balanced approach to precinct vibrancy, support of local
business, and addressing community concerns through structured, transparent, and inclusive
management.

Link to Corporate Plan

Theme No. 2 - Liveability
This theme encompasses housing, facilities and services, transport, health and wellbeing to enable
an inclusive, connected and vibrant community.
Objective 2.6
Facilitate strong, vibrant, inclusive communities where people have a sense of belonging and are
active participants in a rich community life.

Theme No. 4 - Future
This theme is 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
adaptation, sense of place and destination management.
Objective 4.5
Implement a place-based approach to working with individual towns/villages and address their
specific needs within a whole-of-Council framework.


Previous Council Consideration
Ordinary Meeting Minutes 17 October 2024
Notice of Motion - Investigation for Precinct Management Frameworks for Noosa Junction
That Council request the CEO to prepare a report to a future Council Meeting, outlining options for
managing land use conflicts between entertainment venues and residents. This exploratory report
should investigate best practise in precinct management to assess relevance and suitability.

Finance
At this stage, the recommendation is to explore the feasibility of a framework based on the BID model
only, with all associated investigation work able to be delivered within existing staffing capacity.
Should Council decide to proceed with formalising and implementing a framework and approach
similar to the BID framework in the future, this may require further financial and resource implications
that would need to be considered as part of normal budget consideration processes.

Risk & Opportunities
The exploration of a Business Improvement District (BID) type framework in Noosa Junction presents
both strategic opportunities and associated risks for Council.
On the opportunity side, a BID approach offers a collaborative mechanism to enhance precinct
vibrancy, economic resilience, and community engagement, aligning with Council’s Corporate Plan
and Noosa Plan 2020, and potentially resolving long-standing land use conflicts through coordinated

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management. It also enables local businesses to take a more active role in shaping their
environment, fostering innovation and shared investment in public realm improvements.
Risks include the absence of dedicated BID legislation in Queensland, however the LGA does enable
Council to establish special area levies for similar purposes. Advancing this concept could raise
expectations about additional financial considerations for Council. These could include
administrative support, infrastructure commitments, and stakeholder engagement costs.
Additionally, securing broad-based support from local businesses is critical.

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
Sunshine Coast Council
Griffith University


Internal Consultation
Departments consulted:
     Office of the CEO, Mayor &             Community Services            Corporate Services
             Councillors
      Mayor & Councillors             x   Director                     Director
      Chief Executive Officer             Community Development        Financial Services
      Executive Officers                  Sport & Active Lifestyles    Fleet
      Community Engagement                Arts & Culture               Revenue Services
      People & Culture                    Community Connection         ICT
      Governance                          Customer Experience          Procurement

                                                                       Commercial Property

      Strategy & Environment              Development & Regulation      Infrastructure Services
 x    Director                        x   Director                     Director
 x    Strategy & Sustainability           Development Assessment       Infrastructure Planning, Design
                                                                       and Delivery
 x    Economic Development        &       Local Laws                   Civil and Asset operations
      Destination Management
      Environmental Services              Environmental Health         Waste
      Innovation & Digital Hub            Building & Plumbing          Building & Facilities
                                          Property / Permits           Disaster Management