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NOOSA JUNCTION PRECINCT MANAGEMENT MODELS

Senior Development Planner , Tara Norley · Strategy & Sustainability | Strategy and Environment

Executive summary

At the Ordinary Meeting held on 17 October 2024, Council endorsed a Notice of Motion requesting an investigation into Precinct Management Frameworks suitable for Noosa Junction. This report is in response to this Notice of Motion. This report has been prepared to compare strategies for addressing land use conflicts between entertainment venues and nearby residents. The scope of the report includes a review of current mitigation processes, a brief exploration of best-practice precinct management models, and an assessment of their relevance and applicability to the Noosa Junction context. The report specifically focuses on frameworks designed to manage the interface between hospitality venues and residential areas, while also considering broader, integrated precinct management approaches encompassing the full range of land uses and business activities within the Junction. An evaluation of each option is in Attachment 1 of this report. The report concludes with a recommendation to further explore a preferred framework that seeks to balance the diverse interests of stakeholders, enhance precinct vibrancy, and ensure alignment with regulatory obligations.

Recommendation

That Council

  1. Note the report by the Senior Strategic Planner to the Planning & Environment Committee dated 8 July 2025 regarding managing conflicts between hospitality venues and residents in Noosa Junction;
  2. Engage with relevant Noosa Junction stakeholders to gauge support or otherwise for the potential establishment of a Precinct Management Framework based on the Business Improvement District (BID) model within the Noosa Junction Hospitality Precinct;
  3. Subject to B investigate the feasibility, governance and funding models for the Precinct Management Framework outlined in B.
  4. Report back to Council on the outcomes of B and C.

Report

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 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

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 • 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 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 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.

Report details

Index: ECM/Subject/41.42