Queensland Government Department of Environment and Heritage Protection

Ref CTS 06019/1 6 · Z·4 MAR 2016

Mr Peter Russo MP Chair of Finance and Administration Committee Parliament House George Street BRISBANE QLD 4000

Dear Mr Russo

Thank you for your letter dated 14 March 2016 concerning the Finance and Administration Committee's inquiry into the North Stradbroke Island Sustainability and Protection and Other Acts Amendment Bill 2015.

Thank you for the opportunity to respond to the submissions received on the Bill. I appreciate the extension to our due date that was approved on the 18 March 2016.

The Department of Environment and Heritage Protection has synthesised and summarised the issues raised in individual submissions by topic as identified in the Committee's table, and provided a response to each topic. I understand the Department of State Development will be responding to the committee directly on issues raised in relation to the draft Economic Transition Strategy and Workers Assistance Scheme.

Should you have any further enquiries, please contact Mr Geoff Robson, Executive Director, Strategic Environment and Waste Policy on telephone 3330 5040.

Yours sincerely

J m Ree s ~ t:neral

1. Departmental Response to FAC 2. 2011 (draft) Situational Analysis

Level 13 400 George Street Brisbane GPO Box 2454 Brisbane Queensland 4001 Australia Telephone+ 61 7 3330 6297 Page 1 of 1 Website www.ehp.gld.gov.au ABN 46 640 29'4 485 DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

Topic/summary Submission number/s Departmental response

Timeframes 1, 3, 4, 5, 6, 7, 8, 9, 10, 11, 12, 14, 16, 17, The government has committed to 18, 19, 20, 24, 28, 29, 32, 33, 36, 37, 38, 39, substantially end mining activities These submissions refer to the 40, 41, 43, 44, 45, 46, 47, 49, 50, 51, 52, 54, in the North Stradbroke Island proposed 2019 end date to 55, 56, 57, 59, 60, 62, 63, 64, 65, 69, 70, 71, region by 2019. sandmining in the Bill. 73, 74, 76, 80, 81, 83, 84, 86, 87, 88, 89, 90, The government committed to Responses are more or less 91, 92, 93, 95, 97, 98, 99, 100, 102, 101, repealing the 2013 amendments in evenly split between supporting 103, 104, 105, 108, 110, 111, 112, 115, 116, order to return to the original an end to sandmining in 2019 (as 117, 118, 120, 121, 122, 123, 125, 127, 128, intent of the North Stradbroke per the government’s Bill), an 131, 132, 133, 134, 135, 136, 138, 139, 140, Island Protection and Sustainability end to sandmining in 2024 (as 141, 143, 144, 145, 147, 148, 149, 150, 152, Act 2011 (the 2011 Act). per the Private Member’s Bill), 153, 154, 155, 156, 157, 158, 159, 160, 162, and an immediate end to 163, 164, 165, 167,168, 169, 170, 171, 172, The 2011 Act did not allow renewal sandmining in 2016. 173, 174, 175, 176, 178, 180, 181, 182, 183, of leases beyond 2019. 184, 185, 187, 188, 189, 190, 191, 192, 193, Many consider a longer 194, 196, 197, 198, 200, 201, 202, 203, 204, The North Stradbroke Island transition time (later mining end 205, 206, 207, 208, 210, 211, 212, 213, 214, Protection and Sustainability and date) is required/would be 215, 216, 217, 218, 219, 220, 221, 223, 224, Other Acts Amendment Bill 2015 beneficial, and a number of these 225, 228, 229, 230, 231, 232, 233, 234, 235, (the Bill) provides for a restricted suggest mining should continue 237, 238, 239, 242, 243, 245, 248, 249, 251, mine path map which will ensure to 2027 or 2035. 254, 255, 256, 257, 258, 259, 260, 261, 263, environmental and cultural heritage impacts are minimised. Some oppose closure of the mine altogether. The government has committed over $28 million to support the Some submissions note concerns economic transition of North with mining impacts on Stradbroke Island. economic transition and ecological values.

Topic/summary Submission Departmental response number/s

General - Bill provisions 117, 121 The Bill achieves its policy objective to repeal the 2013 amendments.

One submission asserts that In regards to the restricted mine path, the Bill allows for a different the government’s Bill gives mine path to be proposed, if it can be demonstrated that impacts on rise to ‘significant legal, environmental and cultural heritage will not be increased. environmental and policy The four month timeframe is adequate to facilitate a timely decision issues’ (specifically in relation and enhance certainty with respect to the operations at Enterprise to the restricted mine path Mine. It is an extension on the two month timeframe provided for in and new Rehabilitation the 2011 Act. Authority) and believes that these measures are at odds The Bill was introduced in December 2015, giving affected parties with two of the Bill’s primary time to begin investigations and commence discussions in order to policy objectives; to reduce meet the timelines. The four months specified is four months after the environmental impact, and to commencement of the amending Act. provide certainty of access to the sites for rehabilitation The Department of Environment and Heritage Protection (the and environmental department) understands that a significant amount of work has management after the mining already been completed by Sibelco to determine an alternative restricted mine path, including environmental investigations and

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS leases have been terminated. initial cultural heritage considerations.

The other submission asserts Compensation requirements that the four months to The drafting of the Bill reflects a principle that the entity that receives propose mine path the rehabilitation authority should be required to pay any necessary alterations is “unusable”, that compensation to a land owner or native title holder. This approach is requirements for an ILUA to consistent with how compensation is payable to native title holders be in place “extraordinary” and land owners when mining leases are renewed or granted (i.e. in and transfer of responsibility these cases the State does not pay the compensation, but the miner for native title holder does). compensation from the government to Sibelco are The Bill inserts provisions providing for compensation to be paid to an “untenable” and “unjust in owner of land in relation to the grant of an authority under section the extreme”. 344A(3). Under proposed section 345, an environmental authority holder who is authorised to enter land under section 344A(3) must pay compensation to each owner of land in compliance with a compensation agreement between the holder and each owner, or as decided by a court. The grounds for payment of compensation are the same as those for the renewal or grant of a mining lease to a landholder.

In situations where there is a native title holder (such as on North Stradbroke Island) there is no liability to compensate native title holders under the Mineral Resources Act 1989 as they are not land owners under the Act. Any compensation for native title holders will be payable under the Native Title Act (Cth), not the Mineral Resources Act 1989.

Topic/summary Submission Departmental response number/s

General – 2, 5, 12, 63, There was extensive consultation leading up to the development of the 2011 Consultation 86, 116, 117, Act. The Bill returns the North Stradbroke Island legislation to the original 121, 145, intent of this Act. These submissions 173, 203, suggest that With regards to the 2015 Bill, the department consulted with a range of 216 consultation on the Bill stakeholders. was not adequate, The department has provided the committee with a record of the with some making consultation undertaken by Minister Miles and departmental officials: specific reference to a http://www.parliament.qld.gov.au/documents/committees/FAC/2015/B12- lack of consultation NthStradbrokeIsl/B12-bp-24Feb2016.pdf with certain groups. The Premier and Deputy Premier had multiple meetings with union members A submission asserts from Sibelco and Stradbroke Ferries. that the Bill cannot be viewed in isolation The government committed to substantially end mining activities in the from the economic North Stradbroke region by 2019. All consultation was undertaken on this transition plan and basis. worker assistance scheme. The department notes that on 17 March 2016, the Legislative Assembly resolved to extend the Committee’s inquiry to include consideration of the Some submissions Department of State Development’s draft Economic Transition Strategy and question why the ILUA

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS for North Stradbroke worker transition plans. Island is confidential The ILUA and request that the ILUA be made public. The ILUA document is a commercial in confidence document agreed between the State and representatives from the recognised native title body and the

Quandamooka People.

The department notes that ILUAs must be registered on the National Native Title Tribunal’s website and there is some publically available information on this website including an extract from the ILUA, the “Agreed Acts” under the ILUA and maps.

Topic/summary Submission Departmental response number/s

General – explanatory 173 The department acknowledges that the Bill is likely to have impacts on the notes economy on North Stradbroke Island. In this regard, the explanatory notes specifically reference the government commitment to provide $20 million to This submission refers transition the economy of North Stradbroke Island away from mining. to economic implications of the Bill The draft Economic Transition Strategy contains information on the current that are reflected in economic and employment profile of North Stradbroke Island. the explanatory notes.

This submission alleges that a section of the explanatory notes is misleading in its stated effect.

Topic/summary Submission Departmental response number/s

General – FLPs 117, 173 The term of the Yarraman mining lease 1109 is reduced by the Bill so that it expires 12 months from commencement of the Act. These submissions query justification of In considering whether sufficient regard is had to fundamental legislative FLPs. principles, it is also necessary to consider other values that are to be furthered by the law.

As outlined in the explanatory notes to the Bill, North Stradbroke Island has very high conservation, biodiversity and cultural values that the government is seeking to protect.

The explanatory notes to the Bill further describe the issue of consistency with fundamental legislative principles:

http://www.legislation.qld.gov.au/Bills/55PDF/2015/NStradIsProtSustOAAB1 5E.pdf

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

Topic/summary Submission Departmental response number/s

General - Policy 63, 121, 124, The government has committed to substantially end mining activities in the rationale 131, North Stradbroke Island region by 2019.

These submissions The government committed to reinstating the intent of the 2011 Act. query end date of 2019 in delivering the objectives of the Bill.

Topic/summary Submission Departmental response number/s

General - Regulatory 117, 121, No regulatory impact statement was completed for the 2011, 2013 or 2015 impact assessment 203, 216, Bills related to North Stradbroke Island.

These submissions The Bill was considered under the government’s Regulatory Impact Statement raise concern that a (RIS) System, using the guidelines approved by the Treasurer, and adopted by RIS was not prepared. the Government in July 2013.

The Office of Best Practice Regulation assessed information provided by the department and determined that the Bill met the guidelines for exclusion from the RIS System.

The Office of Best Practice Regulation concluded that as the impacts of the proposal should already be well understood by both decision makers and stakeholders, the proposal was unlikely to benefit from further assessment under the Treasurer's RIS guidelines.

Further explanation is provided at: http://www.parliament.qld.gov.au/documents/committees/FAC/2015/B12- NthStradbrokeIsl/B12-que-02Mar2016 DEHP.pdf

Topic/summary Submission Departmental response number/s

General – Mining 239 It is correct that the mining leases on North Stradbroke Island have not approval processes necessarily gone through the typical process of renewal provided for in the Mineral Resources Act 1989. This submission suggests the 2011 and At the time of developing the 2011 Act the mining leases on North Stradbroke 2013 Acts meant Island were in various states of currency, expiration, renewal and application mining lease renewals for renewal. did not go through the The 2011 Act affected 42 of the 44 mining leases on North Stradbroke Island typical process. by either: Committee requested • Removing the ability to renew (for those already expiring before clarification of the 2019) process for lease • Deeming their renewals ‘withdrawn’ (therefore expiring them on 14 renewal under the Act. April 2011) • Renewing them, for a limited term (to 2019) with added conditions • Aligning the dates for the term of the leases for a mine (Vance, to

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

2025) • Varying the term of their renewal, or

• Deeming their renewal applications ‘abandoned’ on 14 April 2011.

This information was part of the department’s initial briefing to Committee (pg 5) which also included a table that sets out how the 2011 Act affected each individual lease – please see pages 3-4:

http://www.parliament.qld.gov.au/documents/committees/FAC/2015/B12- NthStradbrokeIsl/B12-bp-24Feb2016.pdf

The explanatory notes accompanying the Bill in 2011 provide information on the policy rationale behind this.

The 2011 Act provided a balanced resolution of the interconnected issues of

mining, Aboriginal land rights, and the environment on North Stradbroke Island. At the time many mining leases on North Stradbroke Island had expired or were approaching expiry.

The 2011 Act achieved its policy objective of substantially ending mining activities (including all heavy mineral sand mining) in the North Stradbroke Island region by the end of 2019, and ending all mining in the region by 2025, by ensuring mining interests for:

• Yarraman Mine ended at the end of 2015; • Enterprise Mine ended at the end of 2019; and • Vance Mine ended on 31 October 2025.

This was achieved by renewing or extending certain leases needed for mining

until those dates. The Act did not terminate before its expiry any mining lease on which there would be an active mine at the time of termination, but provided that no interests could be renewed beyond those dates. The Act terminated leases not needed for mining at the end of 2019, if they had not expired beforehand.

The possibility of using existing administration powers under the Mineral Resources Act 1989 and the Environmental Protection Act 1994 was explored. This option was not suitable because administrative action to renew or terminate mining leases depends on exercises of discretion years into the

future, and therefore offered no certainty to stakeholders and did not provide the optimal environment for the development and growth of businesses and employment opportunities in ecologically sustainable tourism and other like activities.

This submission also Under the Environmental Protection and Biodiversity Conservation Act 1999 noted concern that (Cth) it is the responsibility of the person undertaking the action to determine there was no referral whether they are likely to have an impact on a matter of national of Enterprise Mine environmental significance, and, if so, to refer their action to the Federal under the EPBC Act. Department of Environment for assessment.

Committee requested The submission notes that the Federal Environment Department’s comment on this investigation is ongoing; further information should be requested directly claim. from the Federal Environment Department.

The department directly responded to the submitter to clarify the outcome of This submission also this matter in August 2015. It is the department’s expectation that the mining company would conduct themselves in accord with the decision made by the

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS points to the alleged Court of Appeal. breach of leases The department would refer the Committee to the Attorney General for through sale of sand further information. and notes that this issue has been drawn to the attention of the Attorney-General.

Topic/summary Submission Departmental response number/s

Restricted mine path – 121 Re-establishing the restricted mine path in the Bill ensures that the intent of alternative path the 2011 Act is reinstated. In practice, to re-establish the restricted mine path proposal requires using the restricted mine path that existed under the previous legislation while also taking account of the lawful and more recent operations This submission of the mine. The restricted mine path introduced in 2011 was the path queries the basis of provided by Sibelco as part of its Plan of Operations at that time. proposed restricted mine path, particularly The government’s proposed restricted mine path is the same as that which with regard to applied under the 2011 legislation subject to some changes to reflect changes environmental and to the operator’s footprint since then. This restricted mine path avoids any cultural impacts. areas of endangered or ‘of concern’ biodiversity status vegetation.

The committee have The Bill enables Sibelco to apply to amend the proposed restricted mine path. asked whether the The Minister is able to approve a different proposed path if it fulfils the Department has requirements in the Bill and it can be demonstrated not to result in adverse reviewed Sibelco’s environmental and cultural heritage outcomes. proposed/alternative There are some differences between the restricted mine path proposed by mine path; and advise Sibelco and the government’s proposed mine path. The mine path proposed if there are any by Sibelco includes areas of ML 1120 and does not restrict the mining type issues/concerns arising and activities that may be carried out (whereas the government’s proposed from Sibelco’s mine path map ‘NSI 3’ specifies where dredge and dry mining may occur, as proposed RMP well as identifying a limit of disturbance). compared to the one included in the A full assessment of the direct and indirect impacts of the alternative mine government’s tabled path proposed by Sibelco will need to be undertaken once information about Bill. cultural heritage and environmental impacts is provided as required under the Bill. Any amendments to the current proposed mine path should proceed through the assessment process provided for in the Bill to enable the department to give full and proper consideration to whether the amendment is appropriate.

Topic/summary Submission Departmental response number/s

Restricted mine path – 110, 111, The ability to apply to amend the restricted mine path is consistent with the general 123, 134, 2011 Act. It allows the operator to apply for an amendment to ensure that the 135 mine path is workable. Submissions support the reinstatement of The ability to amend the restricted mine path is subject to limitations, which the restricted mine prevent any amendments that would result in greater adverse effects on

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS path; do not support cultural heritage or threatened ecosystems or an increase in the area of ability to amend RMP. disturbance.

Topic/summary Submission Departmental response number/s

Restricted mine path – 117 The government has committed to restoring the intent of the 2011 Act. The technical issues 2011 Act included a restricted mine path map. The restricted mine path is designed to allow mining until the end of 2019, whilst avoiding areas of high This submission conservation value, such as endangered regional ecosystems. Additionally, asserts that Sibelco the restriction will prevent the acceleration of mining operations, which could put forward a “better result in Enterprise Mine having the same environmental impacts as if mining path with better had continued for longer. environmental and cultural heritage In regards to the suggestion of a ‘better path’ - as was the case in 2011, the outcomes which was Bill incorporates some flexibility to enable Sibelco to apply for an alternative completely ignored in mine path to ensure that mining operations are not inadvertently restricted the final bill”. beyond what was intended.

Raises issues with the A full assessment of the direct and indirect impacts of the alternative mine “disturbance of land” path proposed by Sibelco will need to be undertaken once information about terminology. cultural heritage and environmental impacts is provided as required under the Bill. Any amendments to the current proposed mine path should proceed Raises potential through the assessment process provided for in the Bill to enable the technical/legal issues department to give full and proper consideration to whether the amendment with the RMP and lack is appropriate having regard to cultural heritage and environmental impacts. of proper consultation. Disagrees with the The definition of ‘disturbance of land’ is not considered to restrict inclusion of RMP in rehabilitation activities. The definition of ‘contaminant’ from the legislation. Environmental Protection Act 1994 does not apply to the interpretation of the relevant provisions of the Bill. The relevant provisions amend the North Stradbroke Island Protection and Sustainability Act 2011.

The Department of Natural Resources and Mines, as well as other relevant departments, were consulted extensively on the Bill, in particular on technical aspects of the new rehabilitation authority and associated consequential amendments, including health and safety.

Topic/summary Submission Departmental response number/s

Restricted mine path – 99, 105, 117, The ability to amend the mine path reflects the 2011 Act. amendment provisions 213, 260, As per the 2011 Act, the Bill allows for one amendment These submissions either support application for the mine path. This must be within four months of or oppose providing the mining commencement of the Act. company with the opportunity to This provides for an appropriate balance between business and amend the RMP. community interests. It ensures that the Bill does not Submissions raise additional inadvertently restrict mining more than is intended, whilst still concerns including: providing timely certainty to stakeholders by requiring the application within four months of commencement. - Only one amendment allowed

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

and must be within four There are provisions in the Bill aimed at ensuring that the months (prevents Minister Minister will have the necessary information to make an informed dealing with any unforeseen decision. The amendment application must be accompanied by a circumstances) cultural heritage study and a map of threatened ecosystems. - Criteria regarding the ILUA in Furthermore, it must be “supported by enough information to clause 13 is ambiguous and allow the Minister to decide the application”. concerns that timeframes do The department is currently in discussions with Sibelco directly not allow for reality of ILUA regarding the application and approval requirements in the Bill, negotiation processes including the requirement for an ILUA. - More clarity regarding ILUA requirement in clause 13 is required, otherwise it should be removed as a criteria for approval - Concern whether sufficient information about, for example, species, hydrology, vegetation, will be available for Minister to make decision.

Topic/summary Submission Departmental response number/s

Restricted mine path – 121 A four month time period (from commencement of the Bill) is considered to technical issues be sufficient to lodge an application to amend the restricted mine path. Discussions have been underway between the department and the mining Concern that there will company since the Bill’s introduction in December 2015. be no ability to make modifications to the The provisions regarding the amendment of the restricted mine path path to take into provide for an appropriate balance between business and community account unforeseen interests. The provisions ensure that the Bill does not inadvertently restrict geological or health and mining more than is intended, whilst still providing timely certainty to safety risks, climate stakeholders by requiring the application within four months of events, access issues or commencement. the practicalities of The department is working with Sibelco directly in regards to their concerns progressive about technical issues of the Bill. rehabilitation. Sibelco have a long history of sand mining on North Stradbroke Island and Concern that four have experienced many events including bushfires. Like any mining operator month time limit is in Queensland, Sibelco would factor such risks into its business plans. The unrealistic considering restricted mine path only restricts the area on which ‘winning’ of minerals requirements for can be carried out; it does not affect Sibelco’s ability to carry out its Health making an application. and Safety obligations.

Health and safety is paramount and the department would support Sibelco to undertake necessary activities if there was an emergency that endangered human safety.

The Department also answered questions on these issues at the 16 March public hearing and the transcript may provide further information:

https://www.parliament.qld.gov.au/documents/committees/FAC/2015/B12-

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

NthStradbrokeIsl/B12-trns-16Mar2016.pdf

Topic/summary Submission Departmental response number/s

Specific mine leases 99, 108, 137, Yarraman mine lease (ML 1109) is proposed to be extended for 12 260, 149, 123, months following the commencement of the Act. Sibelco have These submissions comment 110, 111, 244 indicated that mining extraction on ML 1109 has finished and that on the effect of the Bill upon the site is now in rehabilitation phase. specific mining leases. This 12 month extension gives Sibelco certainty of access to allow Submitters: continued uninterrupted rehabilitation at ML 1109. In response to - Do not support renewal concerns expressed by the Quandamooka Yoolooburrabee Aboriginal of ML1109 beyond 2015 Corporation regarding native title, the Bill shortens the time to expiry - Do not support mining in considerably. This interim period will also give the relevant any part of ML1120 government department’s time to develop a process and guideline for the new authorisation under chapter 13, part 4 of the Mineral Resources Act 1989, ensuring a seamless transition when the mining lease expires, should this authorisation be required for further rehabilitation.

In relation to ML 1120, the amendments introduced by this Bill restore the restricted mining path for the Enterprise Mine, which means that mineral extraction will not be permitted on ML 1120 as it is outside of the restricted mine path on the restricted mine path map (approved by the chief executive of the Department of Environment and Heritage Protection and current on commencement).

There are strict conditions that must be met before an amended mine path can be approved. For example, any land to be added to the mine path cannot include a threatened ecosystem and the change must not result in any significant adverse increase in impact on Aboriginal cultural heritage or a threatened ecosystem.

These conditions would need to be met with respect to any area of ML 1120 that was proposed to be part of the mine path.

Topic/summary Submission Departmental response number/s

Rehabilitation authority 117, 138, 99, The department notes that rehabilitation is a high priority for the – general 104, 144, 147, company. 123 These submissions make Rehabilitation conditions are set under the environmental authority, general comments about administered by the department. Sibelco is required to meet those rehabilitation including: conditions before surrendering the environmental authority. - support for provisions in the Bill that ensure The rehabilitation authorisation provides a mechanism for a company to rehabilitation obligations access land in order to undertake rehabilitation and environmental continue and met to the management activities under their environmental authority, in limited highest standard circumstances.

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

- Noting that rehabilitation is a high priority for the company - Opposition to the creation of the new rehabilitation authority on account of concerns in relation to rights of entry.

Topic/summary Submission Departmental response number/s

Rehabilitation Authority – 121 Submission no. 121 queries whether the State has the ability to technical issues supervise and approve the rehabilitation work under a section 344A rehabilitation authorisation. (proposed section 344A authority) It is correct that the normal mine surrender process does not apply to the rehabilitation authorisation. This is because the relevant holder still This submission suggests needs to follow the usual environmental authority surrender process. there is a lack of detail of how It is intended that the environmental authority will still be in force the rehabilitation authority while the rehabilitation authorisation applies. will function. Once the rehabilitation authorisation is no longer required for The submission raises rehabilitation, the company still has to apply to surrender the technical issues with the new environmental authority, at which time the department will assess rehabilitation authority with whether rehabilitation is satisfactory. regard to: There will be no legal provisions that compel a lease holder to make an - Process for grant of application for a rehabilitation authorisation. There is no application section 344A for the authorisation; the authorisation will be granted directly to the authorisation (‘does not company. There is no risk to the state or the environment that a contain any of the previous mining lease holder will abdicate their obligations to process steps that apply complete rehabilitation because these obligations are imposed under to normal mine the environmental authority, which should still apply after the mining surrenders’) lease ends. - Requisite obligations and rights required to ensure It should also be noted that the rehabilitation authorisation has been safe conduct designed so that there are no application processes. This will minimise - Access for administrative delays and ensures that there are no application fees. decommissioning and The department is currently consulting with Sibelco directly regarding rehabilitation (‘mining its concerns that the rehabilitation authorisation does not include the activities’) necessary authorisations and that the authorisation will not work if the - Lack of ability of the State relevant mining leases have been terminated. to supervise and approve rehabilitation work The department is confident that there will be no cessation in access - Risk that the requirement rights. The rehabilitation authorisation can be issued immediately to undertake upon the expiry of the mining lease. In the case of North Stradbroke rehabilitation in respect Island, the department will continue to work closely with Sibelco to of a geographical area ensure that this happens. will cease upon the

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

termination of the In regards to the rationale for introducing a new instrument to enable relevant lease. rehabilitation, an important part of substantially ending mining in 2019 - No provisions dealing is to ensure that former mine sites are rehabilitated. with amendment to the While the main policy objective of the Bill was to ensure that mineral EA to relate to the extraction substantially ends in 2019, it was also a policy objective of Section 344A the Bill to ensure that there is certainty of access to the sites for Authorisation. rehabilitation and environmental management after the mining leases - Concern that transition to have ended. S344A authority will not be seamless and will This certainty is required so that environmental authority holders can allow an unacceptable effectively plan and carry out necessary works to comply with their ‘gap’ in authority. rehabilitation obligations in a timely way.

The government sought an option for access for rehabilitation which would meet the following policy objectives: The committee have requested comment on any  meeting the government’s election commitments to return issues with the current the phase out of mining to 2019 and to repeal the 2013 framework (rehabilitation amendments to the North Stradbroke Island Protection and completed under mining Sustainability Act 2011 leases) and how the  consideration of the concerns of stakeholders (including rehabilitation authorisation native title holders) will fit into or replace parts of  the environmental authority holder has certainty of access to this framework. the land  the holder can complete the rehabilitation in a timely manner (i.e. not be delayed by lengthy native title negotiations prior to accessing the site or other delays in access)  liability to the State for compensation is minimised.

The preferred option, as presented by the Bill, was amendments to the abandoned mines chapter of the Mineral Resources Act 1989 (chapter 13, part 4) to create an authorisation that ensures land access for rehabilitation purposes.

Consequential amendments ensured that the health and safety arrangements that would normally apply on a mining lease will continue to apply to work under the authorisation.

Rehabilitation on North Stradbroke Island cannot occur under the current framework due to the removal of the ability to renew leases. Without the renewal process, an alternative way to access mined land is required to ensure that Sibelco can complete remaining rehabilitation works.

The rehabilitation authorisation may be used state-wide however the policy objective of this new authorisation is that it should not replace existing mechanisms, rather it should only be used in limited circumstances, to enable access where the mining lease (or other tenement) is not able to be renewed for some reason.

A benefit of the rehabilitation authorisation is that it can be granted for just the area that needs rehabilitation, while a mining lease restricts access over a broad area. This is particularly beneficial in the case of North Stradbroke Island.

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

A rehabilitation authorisation responds to the desire of North Stradbroke Island’s native title holders to regain the greatest possible use and enjoyment of their traditional lands, while providing the authority needed for an ex-leaseholder to access land to fulfil its rehabilitation obligations.

Topic/summary Submission Departmental response number/s

Rehabilitation Authority – 117 Ensuring continuity of health and safety arrangements was a key Health and Safety, consideration in developing the rehabilitation authorisation and Compensation, other technical considering any required consequential amendments. issues The Bill amends both the Coal Mining Safety and Health Act 1999 and Submission no. 117 raises Mining and Quarrying Safety and Health Act 1999 to ensure these concerns about: Acts continues to apply to a mine which does not have current tenure but has an authorisation to enter land under section 344(A). - Health and safety implications Notably the Bill amends the definition of ‘mine’ in these Acts to - the perception of sovereign include any area that has a rehabilitation authorisation granted over risk it. This means that all references to a ‘mine’ in these Acts also apply - high number of possible of to an area under a rehabilitation authorisation. entry notices required to In the areas subject to a rehabilitation authorisation, the holder will be provided by the have the ability to, and responsibility for, restricting access in order company (admin burden) to meet their obligations under the health and safety acts. - potential impacts of the new access for tourism and The rehabilitation authorisation is restricted in design. As per the traditional owners/Native explanatory notes on page 4: “The policy objective of this new Title holders authorisation is that it should not replace existing mechanisms, - query will lower rather it should only be used to enable access where the mining lease rehabilitation standards be (or other tenement) is not able to be renewed for some reason.” In accepted by EHP this way, the Bill finds the right balance between resolving issues that - query will EA amendments have existed for a significant period of time and not unduly impacting be treated as minor on investor confidence. - right to refuse access to sensitive rehabilitation The department has no intention of accepting lower rehabilitation areas standards. The Bill does not amend the rehabilitation obligations - requirement for Sibelco to imposed on Sibelco. pay compensation to The department is considering the entry notice requirements for the native title holders. rehabilitation authority in response to submissions.

Compensation

The Bill reflects a principle that the entity that receives the rehabilitation authority should be required to pay any necessary compensation to a land owner or native title holder. It is considered that this approach is consistent with how compensation is payable to native title holders and land owners when mining leases are renewed or granted (i.e. in these cases the State does not pay the compensation, but the miner does).

The Bill inserts provisions providing for compensation to be paid to an owner of land in relation to the grant of an authority under

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DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

section 344A(3). Under proposed section 345, an environmental authority holder who is authorised to enter land under section 344A(3) must pay compensation to each owner of land in compliance with a compensation agreement between the holder and each owner, or as decided by the Land Court. The grounds for payment of compensation are the same as those for the renewal or grant of a mining lease to a landholder.

In situations where there is a native title holder (such as on North Stradbroke Island) there is no liability to compensate native title holders under the Mineral Resources Act 1989 as they are not land owners under the Act. Any compensation for native title holders will be payable under the Native Title Act (Cth), not the Mineral Resources Act 1989.

Topic/summary Submission Departmental response number/s

Environmental 100 ,135, The department recognises the rich cultural heritage and outstanding 139, 61, 136, conservation values of North Stradbroke Island. The submissions noted 148, 140, that: Naree Budjong Djara National Park, which covers 50% of the island, 134, 135, features places of significant conservation value and a variety of special - Rehabilitation should 142, 123, 83, habitats, including mangroves, wetlands, endangered heathlands, old be to the highest 34, 30, 76, growth forests freshwater lakes and woodlands. These habitats are home standard 149, 94, 74, to threatened animal and plant species including orchids, as well as a - Whole island should 48, 135 genetically distinct population of the koala. become national park post mining North Stradbroke Island wetlands are significant because they provide - Concerns about some of the best and largest representatives of southern sandy island damage to the wetlands, they include a diversity of wildlife in natural conditions, and environment from provide refuge habitat to wildlife including migratory species. mining e.g. oil spill at The department acknowledges that urban development and sand mining Amity Point on North Stradbroke Island have, to various extents, activated sediment - Concerns about air movement, impeded, disrupted and withdrawn from natural flows, and pollution from two impacted water quality. largest mines - Concerns about Rehabilitation standards and environmental harm irrevocable damage to aquifer In terms of rehabilitation standards, the Bill does not affect the - Concern about water requirements of Sibelco in regards to meeting the conditions of its quality and quantity environmental authority or its obligations in regards to environmental - Fraser Island inquiry harm. concluded sand Sibelco is required to complete rehabilitation as conditioned by their mining causes major, environmental authority. permanent environmental harm Compliance concerns to sensitive sand islands On 29 October 2014 and 30 March 2015 inspection of mine sites on North - Concerns about Stradbroke Island was undertaken by departmental officers. No non- breach of compliance with the conditions of the EA or requirements of the

13

DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS environmental Environmental Protection Act 1994 was identified. Further, no recent non- obligations with compliance with EA conditions are on the department’s records. regards to controlling For further information, see page 3 of the following document: feral animals and fire management http://www.parliament.qld.gov.au/documents/committees/FAC/2015/B1 2-NthStradbrokeIsl/B12-que-24Feb2016.pdf

Submission no. 81 cites data from the Department of Environment and Heritage Protection which is alleged to show that Enterprise Mine on North Stradbroke Island scored second and third highest air pollution scores respectively as point sources of PM10 and PM2.5 emissions in South-East Queensland and that the combined emissions from the two mines on North Stradbroke Island are approximately double the combined emissions from the BP and Caltex refineries at the mouth of the Brisbane River.

In response, officers from the Department of Science, Information Technology and Innovation (DSITI) note that the PM10 and PM2.5 emissions data reported for Enterprise Mine (and the other facilities listed on the Clean Air website) for 2013-2014 appear to have come from the National Pollutant Inventory (NPI) website at www.npi.gov.au where data can be downloaded, and ‘ranked’, by the general public. The data did not come from the Department of Environment and Heritage Protection. DSITI is unaware of any report published by the Department of Environment and Heritage Protection or NPI specifically ranking sites in South-East Queensland for 2013-2014.

The data for the facilities on North Stradbroke Island has been calculated using emission factors and are generally estimates of emissions based on a number of activity parameters. No monitoring data has been provided by the site to the NPI.

In regards to alleged impacts on water bodies, DSITI have provided the following response:

http://www.parliament.qld.gov.au/documents/committees/FAC/2015/B1 2-NthStradbrokeIsl/B12-que-17Feb2016 DSITI.pdf

Restricted mine path

Submission no. 123 claims Sibelco has cleared areas outside the limit of disturbance after introduction of the Bill on 3 December 2015.

The government’s proposed restricted mine path map containing the ‘limit of disturbance’ does not come into effect until assent of the Bill.

The department advises that Sibelco’s current activities are governed by the current environmental authority which does not contain a ‘limit of disturbance’.

Future National Park

Currently, mining leases cover about 40% of the island and mining leases confer exclusive use to their holder.

The Bill does not provide for any additional land to be transferred to national park. The final land use of the areas of unallocated state land

14

DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

currently under mining lease (such as Enterprise and Yarraman) will be determined considering a range of factors including the environmental and cultural values of the land and their context in the transition of the island as a whole post-mining.

The draft Economic Transition Strategy includes a provision to “develop a strategy for expanding national parks and other protected areas and transfer expired mining leases in stages, with funded joint management arrangements”.

Expansion of the protected area estate will require comprehensive consideration of a range of factors by the government and traditional owners, as well as other stakeholders.

Pest management

Sibelco’s EA conditions relating to pest and weed eradication were amended to remove overlapping jurisdiction with the Land Protection (Pest and Stock Route Management) Act 2002 which is administered by the Department of Agriculture and Fisheries.

Topic/summary Submission Departmental response number/s

Impacts – community 43, 127 Noted.

These submissions noted The Government has committed to substantially end mining activities that the mines closures will in the North Stradbroke Island region by 2019. be as detrimental to the provision of essential services and community facilities on the Island

Topic/summary Submission number/s Departmental Response

Impacts – Economic 1, 3, 5, 7, 9, 13, 14, 15, Noted. 16, 17, 18, 24, 31, 32, These submissions concerns economic Please refer to the response from the 40, 41, 48, 52, 54, 56, impacts of mining ending. Department of State Development. 63, 64, 82, 86, 87, 89, Many referred to the economic contribution 91, 97, 98, 109, 114, Sibelco makes to the island in particular in 115, 116, 117, 119, terms of employment, and impacts of ceasing 121, 125, 128, 131, mining such as to the ferry service, schools 142, 145, 151, 173, and community services that are supported 201, 203, 216, 236, fully or in part by Sibelco. Submissions also 238, 239, 244, note flow on effects to businesses and suppliers in the broader Redlands and SEQ region.

Many comments suggest the 2019 timeframe

15

DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS is too short

Many comment that tourism can not replace mining jobs and incomes

Some note that people with mining jobs may not be able to easily transition to tourism jobs, and that tourism jobs tend to be seasonal, casual and part time

Submissions note the potential for significant direct and indirect job losses

Some consider that the job losses have been exaggerated and suggest an integration of NSI and SEQ economies.

Some note the closure of two mines since the 2011 census means the direct job figures may be overstated.

Submissions contend that there is no economic argument to justify the ongoing suppression of native title rights and interests

Submissions suggests that there will be impact to house/real estate values

The committee have requested a copy of the Situational Analysis – please find attached.

Topic/summary Submission Departmental response number/s

Impacts – personal 2, 10, 11, 12, 20, 24, Noted. 44, 53, 58, 61, 72, 74, These submissions noted personal The government has committed $5 million for a 91, 112, 113, 114, impacts of the future mine closure Workers Assistance Scheme to help sand mining 119, 126, 129, 131, particularly job losses to individuals workers transition to other employment. 138, 139, 145, 150, and contractors, many island 154, 163, 179, 204, Please refer to the response from the Department residents. 207, 221, 225, 232, of State Development. Concerns also included a drop in 233

property values, the ability to find work on the island, to retrain, to find work at all and the flow on effects of mining job losses to other businesses.

16

DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS

Topic/summary Submission number/s Departmental response

Indigenous 60, 64, 81, 85, 103, Noted. 106, 110, 111, 117, Many submissions noted concerns The Bill returns the end of sand mining at Enterprise 123, 134, 135, 142, for loss of cultural heritage mine to 2019, as was agreed with the 143, 144, 147, 148, Quandamooka People in 2011. Submissions noted support for the 150, 161, 186, 196, native title rights of the 199, 202, 208, 227, 253 The Bill contains provisions requiring any Quandamooka application to amend the restricted mine path to include a cultural heritage study, and an ILUA Many said the ILUA signed in 2011 agreed for the areas of proposed change. This will needed to be upheld ensure that impacts on cultural heritage will be Some submitters consider that any considered by the Minister before any amendments lease extensions would be invalid as are able to be made to the restricted mine path. to Native Title, and notes In developing the Bill, the department consulted suppression of NT rights with the Quandamooka Yoolooburrabee Aboriginal A number of submissions noted that Corporation (QYAC) as the agent for the ending mining in 2019 could mean Quandamooka People’s native title rights and the High Court Case could be interests. dropped The government has committed $5 million for a Some submitters suggested the end Workers Assistance Scheme to help all sand mining of mining will have detrimental workers transition to other employment. effects to Indigenous peoples The Bill does not introduce amendments which A few submitters questioned would breach the Native Title Act 1993 (Cwlth) or representation of the traditional the ILUA between the State and the Quandamooka owners. People.

Committee have requested The ILUA is an agreement between the information on how Sibelco are Quandamooka People, QYAC and the State. The affected by the ILUA. ILUA binds all parties and all native title holders to the terms of the agreement. Sibelco is not a party to this agreement and therefore it is not considered that Sibelco has consented to, or is bound by, its terms.

However, the parties to the ILUA have agreed to undertake certain activities and processes under the ILUA. This means that Sibelco’s activities may have been impacted by the ILUA.

Topic/summary Submission Departmental response number/s

Sovereign risk 117, 216 Noted.

These submissions consider the The government has committed to substantially end uncertainty created by the changes to mining activities in the North Stradbroke Island region Sibelco’s mining tenures create by 2019. sovereign risk and impact investment The Bill will see a phased end to mining and an assisted

17

DEPARTMENT OF ENVIRONMENT AND HERITAGE PROTECTION RESPONSE TO COMMITTEE SUBMISSIONS in Qld. transition towards more ecologically sustainable land uses in the North Stradbroke Island region. The Bill does not amend other mining leases in other parts of the State outside of the North Stradbroke Island region.

Topic/summary Submission Departmental response number/s

Economic Transition 6, 16, 35, 50, Noted. 63, 74, 82, Many of these submissions suggest that 2019 is The government has committed to substantially 98, 117, 120, not enough time to transition end mining activities in the North Stradbroke 121, 130, lsland region by 2019. Some suggest the lack of an economic argument to 131, 139, transition 142, 143, The department notes that the on the 17 March 145, 148, 2016, the Legislative Assembly resolved to Suggest specific activities or infrastructure 163, 203, extend the Committee’s inquiry to include requirements to support the transition 209, 216 consideration of the Department of State Note the seasonality of tourism; inability to make Development’s draft Economic Transition up the ‘shortfall’ in jobs and income Strategy and worker transition plans.

Concern about impacts of increased tourism Please refer to the response from the development Department of State Development for further detail. Note closures of certain areas to the public by the government

Submissions discuss the impacts to associated businesses, such as the ferries

Some suggest projects in the Economic Transition Strategy could occur without the closure of mining, some suggest mining is limiting opportunities

Suggest the level of funding is inadequate

Some comment on the consultation of the Bill and the Economic Transition Strategy and the lack of alignment

18

North Stradbroke \s\and

..

Draft Situational Analysis A sustainable economic future for North Stradbroke lsland/Minjerribah

Prepared by: Queensland Parks and Wildlife Service, Department of Environment and Resource Management

© The State of Queensland (Department of Environment and Resource Management) 2011 Copyright inquiries should be addressed to or the Department of Environment and Resource Management, 41 George Street, Brisbane QLD 4000 If you need to access this document in a language other than English, please call the Translating and Interpreting Service (TIS National) on 131 450 and ask them to telephone Library Services on +61 7 3224 8412. This publication can be made available in an alternative format (e.g. large print or audiotape) on request for people with vision impairment; phone +61 7 3224 8412 or email .

December 2011

Message from the Chair of the Economic Transition Taskforce

Following the Queensland Government’s announcement of its vision for North Stradbroke Island/Minjerribah, an Economic Transition Taskforce (the taskforce) was established to lead and coordinate the development of a long- term strategy for a sustainable economic future on the island. The taskforce is overseeing the development of three documents that provide a framework for economic transition on the island. Targeted community and industry consultation has been undertaken in developing key strategies and actions. • The Economic Transition Strategy seeks to establish a framework that encourages sustainable economic activity, with a focus on the importance of people, infrastructure and land. • The Planning for Action draft plan identifies priority actions with the potential to contribute to sustainable economic growth for the island and its community. • The supporting Situational Analysis provides detail about the current economic state, history, natural environment and geography of the island, and sets the policy framework for the strategy. The taskforce recognises that a healthy business environment, able to support small business, will be critical to the island’s economic future. The newly formed local Chamber of Commerce is represented on the taskforce and enthusiastically endorses this approach. The Chamber has also highlighted the need for immediate and meaningful action to support struggling businesses, which underpins the Planning for Action document. The Quandamooka People have played a critical role in the work program of the taskforce. The Queensland Government is committed to engaging the Quandamooka People in all industry action areas, now and into the future. These documents aim to inspire community discussion about actions and opportunities for positive and sustainable economic change. The documents are not Queensland Government policy. Rather, they have been developed to encourage an economic transition for the island that includes short, medium and long-term actions. Once these priorities have been identified by the community, government (local, state and federal) and private investors will be able to make informed decisions about future funding options. There are a number of actions better suited to a longer timeframe because of the need for in-depth scoping studies or information that will only be available once land use planning processes are wrapped up. In some instances, the current market is not considered adequate to support these initiatives, but they have been noted for consideration. Land use planning, infrastructure development and social policy outcomes are other themes the taskforce has identified as critical to the island’s future. In its deliberations, the taskforce has emphasised the importance of a financial commitment from the Queensland Government that will enable the prioritisation of actions that provide the highest economic and social value to the community. We recognise that community input and support is essential to achieving our goals and as such, feedback from all interested stakeholders is welcomed. To provide your feedback or obtain a copy of the documents please contact DERM via: • NSI Strategy phone freecall 1800 194 064 • NSI Strategy email • NSI Strategy website • NSI Information Centre, 7 Stradbroke Place, Dunwich

Ian Fletcher Chair, Economic Transition Taskforce Director-General, Department of Employment, Economic Development and Innovation

iii Draft Situational Analysis—not government policy

List of acronyms

ABS Australian Bureau of Statistics AMS Associated Minerals Consolidated ATSI Aboriginal and Torres Strait Islander CRL Consolidated Rutile Limited DEEDI Department of Employment, Economic Development and Innovation DERM Department of Environment and Resource Management DLGP Department of Local Government and Planning ETS Economic Transition Strategy ILUA Indigenous Land Use Agreement MBRS Moreton Bay Research Station NSI North Stradbroke Island QP&ATSI Quandamooka People & Aboriginal Torres Strait Islander QPWS Queensland Parks and Wildlife Service QYAC Quandamooka Yoolooburrabee Aboriginal Corporation RCC Redland City Council SEIFA Socio-Economic Indices for Areas SEQ South East Queensland SPA Sustainable Planning Act 2009 SWMQ Saltwater Murris – Quandamooka TAZI Titanium and Zirconium Industries VET Vocational Education and Training

iv Draft Situational Analysis—not government policy

Contents 1 Setting the scene 1 1.1 History 1 1.2 Natural environment 2 1.3 Geography 3 2 The Queensland Government vision 5 2.1 Native Title determination 5 2.2 National Park creation 6 2.3 Mining 8 2.4 The need for an economic transition process 8 3 The regional context 9 3.1 Moreton Bay and islands 9 3.2 The role of Redland City Council (RCC) 9 4 Socio-economic profile—issues, challenges, opportunities 11 4.1 Economic foundations 11 4.2 People 11 4.3 Infrastructure 19 4.4 Land 23 5 Industry and employment profile 27 5.1 Employment by industry 27 5.2 Business and industry 28 5.3 Future industry development and employment 38 Appendix 1 Draft Schedule of Infrastructure projects for future consideration 39

v Draft Situational Analysis—not government policy

List of tables

Table 1. Population (place of usual residence), 2001 and 2006 12

Table 2. Gross individual incomes by sector, 2006 15

Table 3. S EIFA Deciles by census collection districts and post code area 16

Table 4. Audit of community services 21

Table 5. NSI jobs and employment, 2006 2 7

Table 6. Estimated value of tourism to NSI (based on current expenditure) 30

Table 7. Regional target markets 31

Table 8: E conomic and employment impacts of cessation of mining activity 35

Tab le 9: Distribution of indirect losses from cessation of sand mining by sector—% 36

List of f igures

Figure 1. Context map—North Stradbroke Island 3

Figure 2. Stages 1 a nd 2 national park showing areas not available to public at this time. 7

Figure 3. N orth Stradbroke Island Age Distribution, 2001 and 2006 14

Figure 4. Age distribution, 2006 15

Figure 5. Highest level of schooling (15 years and over), 2006 17

Figure 6. N on-schooling qualifications (percentage over 15 years), 2006 18

Figure 7. Non-schooling qualifications (percentage over 15 years), by town, 2006 18

Figure 8. Council land use zoning map 25

Figure 9. Island employment by industry, 2001 and 2006 27

Figure 10. Audit of island businesses by industry, 2011 28

Figure 11. 2011 Redlands Visitors 2002–2009 29

Figure 12. Tourism Queensland market segmentation 30

Figure 13. Redlands rooms and occupancy rate 2006–2009 32

Figure 14. Ferry seat capacity 32

vi Draft Situational Analysis—not government policy

Preface

The Economic Transition Strategy (the strategy) recognises that North Stradbroke Island/Minjerribah’s history, natural environment and Indigenous culture will play a significant role in shaping its future. Moreover, any decisions about the future of North Stradbroke Island/Minjerribah (the island) need to be informed by an understanding of information including demographics, social indicators, existing infrastructure as well as critical economic and industry data.1 This situational analysis is designed to underpin the approach set out in the strategy. Section one focuses on the history, natural environment and geography of the island. While often viewed as background material, each of these areas has had a profound affect on what the island is today and why it is valued by residents and visitors. Section two sets out the policy context within which current consideration of the island’s economic future is located. This chapter identifies the key themes of the Queensland Government’s vision, explains why the strategy is being developed, and presents the broad parameters within which economic change will take place. Section three considers the island within its regional context and sets out Redland City Council (RCC) priorities as they apply to the island. Section four considers the current status of key enablers within the economy, along the lines of people, infrastructure and land. Rather than treating these enablers as simply inputs into economic activity, this chapter seeks to highlight values that are identified in the strategy, particularly with regard to the unifying theme of sustainability. Section five provides the current industry and employment profile of the island to allow for an identification of key opportunities and challenges for the future growth of existing business and the emergence of new industry sectors and employment options for the local community.

1 The following sections outline basic information and data about the island drawn from the Census (2001 and/or 2006), unless otherwise noted.

vii Draft Situational Analysis—not government policy

1 Setting the scene

1.1 History* The island’s history has been shaped by a diverse range of factors reflecting both its Indigenous heritage and European settlement. For the Quandamooka People—the traditional owners of Moreton Bay—history, land, sea and culture are inextricably linked: ‘Our traditional estate—Quandamooka, the waters and islands of central and southern Moreton Bay and the coastal land and streams between the Brisbane to Logan rivers, gave life to us in a time beyond memory. We sing its songs, tell its stories and dance to its rhythms to give honour and thanks and to keep our place in its heart. We are the people of the sand and the water.’ (p.5 Quandamooka Aboriginal Community Profile and Action Plan) Ngugi, Nunukul and Goenpul are the three clan groups of the Quandamooka People whose country has included Minjerribah/North Stradbroke Island for more than 21 000 years. The Indigenous culture of the Quandamooka People is bound by tradition and developed within a structure of beliefs and social relationships. Kabool (or Kabul, Borlung, Ngalyod) is the symbol of the Rainbow Serpent, the giver and taker of life and at the heart of this structure. Kabool is the spirit of creation and of all living things and is symbolic of belonging to, and being interconnected with, the law of the land. This law has been handed down from generation to generation. To use the words of Aunty Joan Hendriks, Aboriginal Elder of the Quandamooka People, ‘[i]t recognises that the spirit of our ancestors lives on with us and in the Earth our Mother; the dwelling place of the Creator Spirit.’ The Quandamooka People tell an age old traditional story that the island of Minjerribah (North Stradbroke Island) and Morrgumpin (Moreton Island) were once linked or joined. This is consistent with European historical accounts of the island as Captain Cook (in 1770) did not make reference to the South Passage Bar. It is generally accepted that over many years the two islands have separated due to the (current or tidal?) erosion that continues today. European settlement took place from 1825 when the island was briefly used as a penal settlement. The island was named Stradbroke in 1827 by Captain Henry John Rous, after his father, the Earl of Stradbroke and originally included both North and South Stradbroke. A pilot station was established at Amity Point in 1825 and a depot for unloading stores was set up at Dunwich in 1827. This was the beginning of permanent contact between Europeans and the Quandamooka People. While the Quandamooka People assisted in the building of the pilot station, conflicts emerged as a result of different laws and culture, and consistent with the history of other Indigenous Australians, massacres took place in the area at Aranarawai (Big Creek) and on the Southern Bay islands. From 1850, fishing became a major industry in the region and the island was opened up to free settlers. In the same year Dunwich was proclaimed to be Moreton Bay’s quarantine site and only a few weeks later a ship pulled in that was found to be carrying typhus. All the passengers were placed in quarantine and 56 people died. The quarantine station discouraged European settlers and thus placed less pressure on the traditional ways of the Quandamooka People. The quarantine station was moved to Peel Island in 1864. Dunwich was then nominated to host a benevolent asylum, which opened up employment opportunities for women, while men took to fishing and farming and as such the population of the island grew. Oyster farming was also established which employed many European and Indigenous people.

* Prior to the arrival of Europeans, Australian Aboriginal languages had been purely spoken languages, and had no writing system. The Latin alphabet of the colonisers was inevitably used for the transcription of Australian Aboriginal languages, but the details of how the sounds were represented has varied over time and from writer to writer, sometimes resulting in a great many variant spellings of the same word or name. (http://en.wikipedia.org/w ki/Transcription_of_Australian_Aboriginal_languages).

1 Draft Situational Analysis—not government policy

Many of the Quandamooka lived at Goompi (Dunwich) and at the Government run Myora Mission from 1893 during this period. With the introduction of the Aboriginal Protection and Restriction of the Sale of Opium Act 1898 (Qld), the Quandamooka, like other Indigenous Australians, were stripped of their basic human rights and their ability to practice their traditions, speak their language and honour their ancestors and their country. (p.6 Quandamooka Aboriginal Community Profile and Action Plan) From the late 1930s, the State moved from a policy of isolation to assimilation. Neither approach succeeded in destroying the Quandamooka People’s connection to culture and country. Tourism came to the island in the 1930s with the opening of the first guesthouse at Point Lookout and the first bus service to Point Lookout was established by Bert Clayton with a trend towards opening up the island beginning to take place. During World War II armed servicemen were stationed on the island, radio tents were set up and a radio direction finder and radar was erected at Point Lookout. On 14 May 1943, the Australian hospital ship 'Centaur' was torpedoed off the island and 268 passengers were killed, leaving only 68 survivors. The benevolent asylum closed in 1946 causing significant unemployment on the island and land was surveyed for the town of Dunwich. In 1947, a vehicular ferry service was established. This year also marked surf life savers patrolling the beaches at Point Lookout. Stradbroke Ferries, one of the major transport ferries to the island, established a regular service to Dunwich in 1964. Sand mining was established when Zinc Corp began mining mineral sand in 1949 on main beach, with the first shipment from the island in 1950. This solved the unemployment problem that had begun to form. On Main Beach seams of mineral concentrated by wave action were shovelled by hand at low tide into old ex-army Blitz trucks and other four-wheel-drive vehicles which transported mineral across the island to Dunwich. Subsequent mining along the beaches and dunes was also carried out by Associated Minerals Consolidated (AMC) and Titanium and Zirconium Industries (TAZI), using dredge operations and a trans-island ropeway to transport the mineral back to Dunwich. In 1966, Consolidated Rutile Limited (CRL) commenced operations using dry mining methods at the Yarraman deposit, taking advantage of the high mineral concentrations in the dune caps in the central part of the island. In 1978, CRL commissioned its first dredge and concentrator to mine the Bayside ore body. This plant was subsequently moved to the Ibis ore body in 1996–97 and into the Enterprise ore body in 2004. In 1985, another operation was commenced at the southern end of the island on the Gordon ore body. In 1999, it was moved to re- mine the Yarraman ore body. CRL's Amity mine (started in 1978 by AMC and bought in 1987) was closed and final revegetation commenced in 1992. Sibelco Australia purchased CRL in 2009. Currently, mineral sands mining operations are taking place at Enterprise and Yarraman mines. In July 2011, the Queensland Government finalised arrangements that allow the mining company to continue mining at the Enterprise mine site until 2019 but on a restricted mine path. Yarraman is due to close in 2015. Silica mining also occurs on North Stradbroke Island. Sibelco also owns and operates a Silica mine at a location known as Vance. Vance will be the last mine to close in 2025. 1.2 Natural environment The island is the second largest sand island in the world after Fraser Island. The cultural and ecological importance of the island’s environment has been recognised regionally, nationally and internationally. It features very high conservation values and a diversity of habitats including wetlands and endangered heathlands, freshwater lakes, rainforests, old growth forest and woodlands. The island’s wetlands, foreshore swamps and interconnecting land are all listed Ramsar Sites and habitats for near threatened, vulnerable and endangered species of flora and fauna. Threatened species found on the island include the Cooloola sedgefrog and black-neck stork, while endangered species include the little tern. All seven mangrove species found in Moreton Bay are also found on the island providing a nursery habitat for fish and invertebrates. Seagrass beds associated with the island support dugong and green turtle feeding.

2 Draft Situational Analysis—not government policy

The value of the environment is intrinsic and profound to the culture of the Quandamooka People. As stated in the Quandamooka Aboriginal Community Profile and Action Plan, 'We are the people of the sand and water…caring for country is our business. It always has been and always will be' [p.5]. Much of the discussion around the environmental values of the island has focussed on those areas that will become part of the future national park as this initiative will significantly enhance levels of environmental protection across the island. A large majority of island residents place significant value on the natural environment within which they live. While there is a broad range of views about the appropriate future for the island, a common theme is a deeply held commitment to protect the environment, whether it is on or off national park. This is linked to a broad recognition of the need for environmental sustainability on the island—an issue that is highlighted in the peak of the tourist season when concerns around environmental impact, sewerage capacity, and social disruption come to the fore. 1.3 Geography The island is located off the coast of South East Queensland, approximately 40 kilometres from Brisbane. It is part of the Redland City Council Local Government Area. The island is 12 kilometres across at its widest point, and 38 kilometres from north to south. Directly north is Moreton Island, another sand island which is predominantly national park and an attraction for recreational tourists. The following map shows the location of North Stradbroke Island in relation to Brisbane. Figure 1. Context map—North Stradbroke Island

Source: SGS Economics and Planning North Stradbroke Island Economic Development Strategy/Scoping Paper Department of Environment and Resource Management P. 4 2.2 Settlement Pattern There are three main townships on the island—Dunwich, Amity and Point Lookout. They are all located on the northern half of the island, and on the coastline. There is also a small settlement at Flinders Beach. Each township has a unique character.

3 Draft Situational Analysis—not government policy

Dunwich is the largest township on the island and hosts 40 per cent of the resident population. The majority of services and facilities are located at Dunwich, and it is the access point for the passenger and vehicular ferries which provide the only public access to the island (apart from access via the airstrip southeast of Dunwich). The island’s schools and preschool are also located at Dunwich and it has a sports club and field. The second largest township on the island is Point Lookout which is located on the north east tip of the island and is home to approximately one third of the resident population. Point Lookout is the major tourist destination on the island, and is the location of some of the best surf beaches including Cylinder, Frenchman’s, Main, and Deadman’s Beaches. The township is located approximately 20 kilometres from Dunwich and there is no harbour facility. The population of Point Lookout tends to fluctuate dramatically between holiday periods, and contains a high proportion of tourist accommodation. There is also a substantial number of houses which are privately owned and are used only occasionally during holidays or weekends (i.e. not for general rental). The proportion of holiday homes has been estimated at 30 per cent while census counts of unoccupied dwellings indicate that approximately 50 per cent of dwellings fall into this category. The third township, Amity, has a village feel and is less of a tourist destination. It is home to about one-fifth of the population and is essentially a small fishing village. While the beaches at Amity are erosion prone, Flinders Beach is a popular destination approximately three kilometres to the east of Amity. The remaining resident population (approximately six per cent) of the island is located at either Flinders Beach or in other housing between the townships.

4 Draft Situational Analysis—not government policy

2 The Queensland Government vision This strategy has been prepared to support the Queensland Government’s June 2010 announcement of its vision for the island, which includes the following outcomes: • the resolution of native title through an Indigenous Land Use Agreement (ILUA) with the island’s Traditional Owners, the Quandamooka People • the creation of national park across 80 per cent of the island by 2027—including 50 per cent by the end of 2011 • the cessation of sand mining • the transition towards a sustainable economic future for the island. The Queensland Government has undertaken a number of initiatives to facilitate its vision. In particular, the passage of the North Stradbroke Island Protection and Sustainability Act 2011 in April 2011 secured the phase-out of sand mining and facilitates declaration of 80 per cent of the island as national park by 2026 to be jointly managed with the Quandamooka People. Furthermore, two native title consent determinations by the Federal Court of Australia have recognised the Quandamooka People’s rights and interests over land and water on and surrounding the island. As part of the determination process, ILUAs have been negotiated between the Quandamooka People and the State, as well as with other parties with an interest in the land. The Queensland Government’s vision for the island recognises that in order to protect the island’s natural heritage, mining must be phased out and that the island economy, as it is currently structured, has been demonstrating signs of strain and decline over the past decade or so. In February 2011, the Queensland Government established the Economic Transition Taskforce (the taskforce), representing a broad range of economic interests on the island, to support the economic transition. The taskforce is chaired by the Director-General of the Department of Employment, Economic Development and Innovation (DEEDI) with Secretariat support from the Department of Environment and Resource Management (DERM). The work program of the taskforce has been supported by the work of consultants with particular expertise in a variety of areas associated with the island’s economic transition. The work of the consultants is being overseen by the ETT and officers within DERM and DEEDI. 2.1 Native Title determination On 4 July 2011, the Federal Court of Australia handed down a determination recognising the Quandamooka People as the native title holders of North Stradbroke, Peel and Goat Islands and surrounding waters. The Federal Court’s determinations recognise the Quandamooka People’s rights and interests in their traditional country. This is the first successful native title determination in South East Queensland. This determination sets out the legal rights and interests that the Quandamooka People have as recognised native title holders of the claim areas. It acknowledges their rights to camp, hunt, fish and gather in accordance with their traditional laws and customs as well as the right to exclusive possession of some areas. In addition to the determinations, the Quandamooka People have agreed on separate ILUAs with the Queensland Government and Redland City Council. These ILUAs recognise the Quandamooka People's rights as Traditional Owners, custodians and managers of their traditional country, protecting the outstanding environmental and cultural values of the island. The interests of the native title claimants are represented through a Prescribed Body Corporate called the Quandamooka Yoolooburrabee Aboriginal Corporation (QYAC). The confidential ILUA with the Queensland Government is likely to have direct implications for future industry opportunities on the island in recognition of the Quandamooka People’s native title rights and interests. The ILUA is scheduled to be registered in December 2011. Until this time, the Quandamooka People’s specific aspirations and industry plans remain confidential and the Quandamooka People reserve the right to enter into any industry planning on a voluntary basis.

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A key outcome of the native title process, which has also been given effect by the North Stradbroke Island Protection and Sustainability Act 2011 is a joint management role that the Quandamooka People will assume with DERM's Queensland Parks and Wildlife Service (QPWS) with regard to the newly created Naree Budjong Djara National Park on the island, under the terms of an Indigenous Management Agreement. In addition, the strategy presents a range of employment and economic development opportunities for the Quandamooka People through grants of tenure over unallocated State land, revenue sharing arrangements with the State and the management of the existing and proposed national park areas. 2.2 National Park creation The first stage of the Naree Budjong Djara National Park, which will be jointly managed by QPWS and the Quandamooka People, was declared in March 2011. The new national park currently covers approximately 20 per cent of the total island. The park's name means 'my Mother Earth' to the Quandamooka People. The timeframes for national park creation are: • by early 2011—20 per cent of the island became national park • by the end of 2011—50 per cent of the island will be national park • by the end of 2021—75 per cent of the island will be national park • by the end of 2026—80 per cent of the island will be national park. The island features places of high conservation value and a diversity of habitats including wetlands and endangered heathlands, freshwater lakes, rainforests, old growth forest and woodland that are home to threatened animal species, including the Cooloola sedgefrog and black-neck stork and little tern. The ancient topography preserves evidence of climatic changes over thousands of years along with remnants of some of the earliest human habitation in Queensland. The national park will protect these areas for future generations and is expected to raise the profile of the island, especially outside South East Queensland, by offering new nature-based business development opportunities and more recreational opportunities. Access by the public to the national park is an important factor in increasing economic opportunities through improved visitation and a diversity of experience. Whilst parts of the national park are covered by non-winning leases for which access is restricted at this stage, access and economic flow on benefits will progressively increase as leases expire or are surrendered through the transition period. The following map shows stage two of the national park (50 per cent of the island by end 2011) overlaid by current mining leases.

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Figure 2.

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2.3 Mining Sand mining has played a significant role in the island’s economy since it was first established in 1949. As well as providing jobs for island residents, sand mining companies have contributed to the community by providing financial and other forms of support to community groups and specific community projects. In order to protect the island’s high conservation values the Queensland Government recently legislated to fast track the end of mining. The legislation enables 80 per cent of the island to be made national park by 2026 and provides timeframes for the phase-out of mining, specifically: • Yarraman mine to close in 2015 as already indicated by the mining company • Enterprise mine—the largest sand mine—to close in 2019 • all mining to cease with the closure of Vance—a small silica mine—in 2025. On 8 July 2011, the Queensland Government finalised the restricted mine path for Enterprise mine, allowing it to operate until the legislated deadline of 2019. The decision will enable the mine to continue to operate while minimising environmental harm and ensuring mine safety. It will guarantee a stable economy for the island in the short to medium term and allow for the transition to a sustainable economic future for the island. 2.4 The need for an economic transition process The Queensland Government recognises a need to facilitate the island’s transition towards a strong, sustainable and green economy given its decision to phase out mining on the island. This provides an opportunity to reinvent the island’s economic future to fit with the community’s aspirations and contribute to the environmental, social and cultural sustainability of the island. There has been significant debate about the importance of mining to the island’s economy and the implications around its cessation. Views range between: • concern that the phasing out of mining will significantly increase economic hardship; and • mining is locking up half of the island and ending it immediately would benefit the community by allowing visitors to enjoy much more of the natural and diverse beauty that the island has to offer. Regardless of the position taken in relation to this debate, there is substantial evidence to suggest that even with mining, the economy is currently under stress and demonstrates a lack of resilience. This economic transition process—supported by the ETT—aims to identify key opportunities and strategies to develop a sustainable economic base for the island into the future. The strategy represents work completed to date.

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3 The regional context 3.1 Moreton Bay and islands Moreton Bay encompasses many islands which are collectively historically known as Quandamooka. North Stradbroke Island and the island communities of southern Moreton Bay (Lamb, Karragarra, Macleay and Russell), Peel and Coochiemudlo are now all incorporated into Redland City. The southern Moreton Bay islands were incorporated into the Redlands on 12 May 1973. In the 1960s and early 1970s, much of the island land was subdivided into small allotments. Since then, Redland City Council has restricted further subdivisions and rationalised planning so that the significant environmental and cultural values of the islands and surrounding Moreton Bay are preserved. The islands are serviced from Weinam Creek Marina, Redland Bay, on the mainland by passenger ferry and vehicle barge. 3.2 The role of Redland City Council (RCC) The RCC, like any local government authority, has a charter to serve its local community. This includes providing governance and support to help its businesses and residents adjust to economic change and to identify and capitalise on opportunities for economic growth and development as they arise. 3.2.1 Redlands community plan The vision and aspirations of the Redlands community, covering the many distinct communities on the mainland and the islands have been articulated by the Redland community through Redlands 2030 Community Plan and subsequently through council’s corporate plan. Eight vision outcome areas contained in these plans speak directly to the development of an economic transition strategy for North Stradbroke Island: • healthy natural environment • green living • embracing the bay • Quandamooka Country • wise planning and design • supportive vibrant economy • strong and connected communities • inclusive and ethical governance. 'Embracing the bay' describes a strong future for the islands where island communities thrive, and strategic plans and visions developed with the community guide successful regeneration, healing and wellbeing. Aboriginal stewardship and the role of Traditional Owners and members of the Aboriginal community in managing natural and cultural resources are acknowledged through various Quandamooka Country goals. The vision for a supportive and vibrant economy includes environmentally responsible businesses, technology-based industries, a marine research centre, Indigenous knowledge centre and flourishing educational ecotourism. Redland City Council has various strategies in place to deliver on the Redlands 2030 visions. The tourism strategy contains objectives to ensure the region’s economy grows through a diverse nature-based tourism industry with investment in tourism infrastructure and partner industries and increasing the value of tourism through improving the environmental and cultural values of the region. The cultural strategy embraces a wide view of culture and affirms its role in protecting and developing the strengths of Redlands’ places and communities. Maintaining the viability of ecosystems by retaining remnant and non-remnant vegetation on the island and increasing the koala population are key outcomes of council’s Biodiversity Strategy.

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The economic future and contribution of the Aboriginal community is outlined in the Quandamooka ILUA, Council’s Indigenous Community Policy and Action Plan and the Quandamooka Aboriginal Community Plan. Dedicated commitment by all levels of government to relationships and partnerships with the Quandamooka People will see the delivery of priorities such as Aboriginal managed enterprises including the Stradbroke Holiday Parks, an aboriginal cultural and interpretative centre, indoor and outdoor sporting facilities, employment and training opportunities, educational tourism and educational product development, Indigenous business support and development, tourism activities and services, and employment programs that maintain the positive contribution of Quandamooka People to the community and reduce their level of disadvantage. The Redland Planning Scheme local level strategy for North Stradbroke Island/Minjerribah commits to precluding areas of high conservation value from development. The island will rely on the mainland and Cleveland as the principal regional activity centre for higher order services and facilities with island centres providing community services and facilities. Local area planning will guide the development of these centres with a range of complementary activities to service the island as a whole as well as projects listed in the Redlands Social Infrastructure Strategy to build the island community. An efficient and sustainable water transport system between the island and the mainland is essential. The 'Seven C's Connection' strategy identifies the declaration of the national park as both an opportunity and a challenge to connect people, plants and animals across private, council and public land—with the opportunity to create a set of major green corridors and pathways across the island and the challenge to ensure that bicycles are permitted in the national park. Council’s policy for a 'child and youth friendly city' also contains opportunities and challenges for a child and youth friendly Stradbroke Island—to make the island a better place for families and children and for the future of local children and young people, as well as the frequent family visitation sector. 3.2.2 Priority initiatives for North Stradbroke Island The council has provided further information to the Economic Transition Taskforce by identifying a number of breakthrough and priority projects which are infrastructure enablers, such as: • marine transport infrastructure (e.g. Toondah Harbour and Dunwich) • tourism infrastructure (e.g. tracks, trails and pathways, whale watch facilities, welcome and information) • cultural infrastructure (e.g. Minjerribah Indigenous knowledge centre, North Stradbroke Island Museum) • social infrastructure (e.g. sport, recreation and community facilities, youth and family facilities, employment and training programs) • civil infrastructure (e.g. town centre, roads and pedestrian pathways, foreshore management) • infrastructure to address island access, isolation and cost (e.g. affordable transport subsidies, internet communication). A more detailed schedule of infrastructure requirements identified by the Redland City Council for consideration by the taskforce is included (Appendix 1). Redland City Council endorses coordinated planning, investment and partnerships with other levels of government, the community and private enterprise to achieve its community plan and policy commitments for the economic transition of North Stradbroke Island to a strong and thriving island future. Council already commits capital and operational resources to strive to achieve the goals espoused in the Redlands 2030 Community Plan, but the vision of sustainability created by the Queensland Government necessitates a higher level of investment. Given the type and quantum of investment associated with both social and physical infrastructure and the processes used by local, state and commonwealth governments to determine the best allocation of resources, the Economic Transition Strategy does not make specific recommendations about what infrastructure should be funded. Rather, it supports the ongoing role of the taskforce in identifying physical infrastructure priorities from an island perspective and the potential oversight by the Ministerial Reference Group of a community needs analysis to identify future social infrastructure needs.

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4 Socio-economic profile—issues, challenges, opportunities 4.1 Economic foundations Governments do not drive economic development, but they do influence the pre-conditions for a competitive and prosperous regional economy. The pre-conditions for any viable economy are: • people—the reason why society seeks a prosperous economy is to benefit the people who live within that society. There is also the need to provide workers with appropriate skills so they are available to meet the needs of local industry. • infrastructure (physical and social)—physical infrastructure such as transport, sewerage and water, internet services, phone services, and community facilities are critical for economic activity to take place. Social infrastructure is necessary for the wellbeing of the community as well as creating conditions that will sustain the workforce. • land—all economic activity is subject to the availability of land and in particular, land which is physically suitable and appropriately designated for the proposed purpose. 4.2 People Within an economic context, people are important. Traditionally, economics focuses on people as labour. In this sense people play a key role because of their contribution to economic activity. The approach adopted in this strategy is to place an emphasis on the need for the economic transition to benefit the whole community through improvements associated with the quality of life as well as economic prosperity. Within the context of the island, there are some key issues that emerge around its population and the relationship between the community and economic activity. These can be summarised as: • the predicted level of population growth and how the relationship between population growth and economic prosperity should be managed given a commitment to environmental sustainability • the significant proportion of the population that are of Aboriginal and Torres Strait Islander descent and the associated issues of social and economic disadvantage which are critical to the future wellbeing of the island community • the significant disparities in the levels of wealth between different townships which raise broader issues around social equity • the island’s comparatively large aging population which has significant implications for both the need for social infrastructure and the availability of labour • levels of education and training are closely linked to the economic opportunities within any community and are therefore critical to the island’s future. The following section seeks to draw out data that can provide the basis for an informed discussion about these issues and their implications for the island’s economic future. 4.2.1 Population One issue that has generated much speculation is around future expectations of population growth on the island, and the potential for either population growth or decline. Debate tends to focus on the tension between the benefits of population growth, in terms of outcomes such as increased capacity for service provision and greater stimulus for the local economy, and the costs associated with this growth, particularly in relation to environmental sustainability. It is widely accepted that a decline in population will be problematic in terms of economic sustainability—as the small size of the island’s population is considered a limiting factor.

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Snapshot In the 2006 Census, the resident population of the island was recorded as 2016 (usual residence data). Most of the population lives in the three main townships, Dunwich (804 people), Point Lookout (669 people) and Amity Point (408 people). The number of people on the island at any time varies considerably due to the non-resident population (e.g. visitors, temporaiy workers, tourists). During peak tolllist pe1iods of Chiistmas/New Yeai· and Easter there have been estimates of up to 30 OOO people on the island, although a more conse1vative estimate of numbers at these times suggests a number upward of 10 OOO. A snapshot of cunent data available regarding levels of population on the island indicates a small decline between 2001 and 2006, which is in contrast to both Redlands and Queensland which experienced a significant increase (see Table 1). This decline of around 1.3 per cent per year confinns the previous trend between 1996 and 2001.

Table 1. Population (place of usual residence), 2001 and 2006

NSI Redlands Qld

2001 2145 114 486 3 522 044

2006 2016 127 629 3 904 532

% growih -6.4 % 11.5 % 10.9 %

Source: ABS Census 2001 and 2006

The likelihood of significant population growth in the foreseeable future is not great. There ai·e a number of local and state government planning documents that include estimated population growth. It should be noted that these figures ai·e estimates only- as such, they should not be treated as either tai·gets or caps. The most detailed analysis is included in the draft Redland City Council's Local Growth Management Strategy 2008, which identified the ClllTent number ofresidents on the island to be 2275 and anticipated population growth of 895 in the pe1iod to 2026 with the majority of the growth located in Dunwich (an increase of 625 people). These Redland City Council estimates were made dllling a pe1iod in which South East Queensland was experiencing extremely high levels of population growth and that trend has now slowed significantly. Therefore, it would be reasonable to consider the estimates ai·e at the upper level of population growth in absence of any other significant changes occuning on the island. Challenges and opportunities The key challenge is to get an approp1iate balance between retaining sufficient population levels to allow for economic sustainability while at the same time ensuring any population increase does not occur at the expense of environmental sustainability. For example, there is a broad view within the community that population levels during peak periods could not be sustained all year round due to increased levels of social and environmental impact. There ai·e a number of mechanisms available to governments to manage population growth, including regulating land availability thI·ough local and state government planning instmments. A land use planning study will be unde1taken to investigate whether an increase in population could be accommodated within the cunent township expansion areas and other areas being assessed as being suitable for residential development. This study will also review the ClllTent planning controls which have limited land development on the island in recent years. The chai·acter of the economic activity that is encouraged on the island will also influence whether any population increase is more broadly sustainable. For example, a lai·ge tolllism reso1t encouraging a large number of tolllists in peak periods is likely to be unsustainable, while low impact camping opportunities targeted at attracting smaller numbers of visitors tm·oughout the yeai· is more likely to be consistent with an environmentally susta.inable future.

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4.2.2 Quandamooka and Aboriginal and Torres Strait Islander population The island is unique in that it has a high proportion of Aboriginal and Torres Strait Islander (ATSI) residents close to Brisbane. This reflects the fact that the Quandamooka People have never relinquished sovereignty over their land and sea country, have had continuous occupation of the island, and have therefore been able to retain their distinctive culture. Snapshot The 2006 Census identified 363 ATSI residents on the island which is over 18 per cent of the total population. While the island’s non-Indigenous population decreased between 2001 and 2006, the ATSI population increased (by 26 persons). It should be noted that this data may be influenced by general inaccuracies in the Census count as post-censual surveys indicate there is typically a net undercount for ATSI people in the order of five to 10 per cent across Australia. It is therefore likely that the Quandamooka Community Plan’s approximation of ATSI population at around 500 is a more accurate figure. Most of the Indigenous population (304 persons or 84 per cent) live in Dunwich where they represent 38 per cent of the total local population. The ATSI community on the island has a higher level of socio-economic disadvantage than other island communities. According to Indigenous Coord ination Centre data, only 50.5 per cent of the ATSI people on the island a re in work, the fo urth lowest participa tion rate in the region and unemployment is high at 13.6 per cent. A third of the community w orks 25 hours a week or less. The 2006 C ensus shows th e average income of an ATSI person on the island is between $200 and $300 a week; with 28 per cent earning between $150 to $249 a week compared to the Australian average wage of $466. There are relatively fewer middle and higher income Indigenous people on the island with 19 per cent earning more than $400 a week compared with 42 per cent for the non-Indigenous population. Challenges and opportunities The Quandamooka People provide a wealth of cultural, social and environmental management expertise, which is considered a significant economic asset for the island community. The Quandamooka People and ATSI community on the island continue to engage in a high degree of self- management in areas such as health, cultural heritage management, land and sea management, housing, employment and community development. This is evidenced in a contemporary way through the number of Aboriginal community organisations, many of which provide service to the wider community. Following the Native Title determination in July 2011, it is anticipated that the Quandamooka People’s aspirations for social, cultural, economic and environment initiatives, and other opportunities in line with the Quandamooka People’s native title rights and interests, can now be progressed. 4.2.3 Age profile The age profile of a population has significant economic and social implications. In particular, an ageing population means fewer workers are available and there increasing demands for social services, particularly in relation to health services and aged care. It is also associated with a higher demand for low maintenance accessible dwellings. Snapshot The age profile of the island indicates that the local population has aged since 2001. The resident population over 55 years of age increased as a proportion of the total population and the proportion of residents aged 65 years and over grew from 10.7 per cent in 2001 to 14.9 per cent by 2006. The median age on the island was 43 in 2006 compared to the Queensland average of 36. Geographically there is a very wide spread in median age with it being 59 years in Amity, 44 years in Point Lookout and 38 years in Dunwich. While the working age population (32.8 per cent) is not very different to the rest of Queensland (33.5 per cent), it is projected to decrease significantly to approximately 21 per cent by 2026.

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Over the coming 20 years the larger geographical area of Redland City Council is projected to age with the median age increasing from 38 to 46 (compared with 36 to 40 in Queensland). This ageing will be particularly prominent in the 50 to 64 age group where a doubling of the population is expected. Already over the past four years to 2009 the population has aged quickly with a 33 per cent increase in the number of people claiming a Centrelink age pension in the Redland region. Figure 3. North Stradbroke Island Age Distribution, 2001 and 2006

Source: ABS Census 2001 and 2006

Challenges and opportunities The age profile on the island and the increasing trend towards an aging population indicates that there is a potential shortage of people of working age and an increased strain on, and future demand for, social services, particularly in relation to health care. The older age structure may provide growth opportunities for aged care based industries and occupations such as nursing staff and carers. These future older residents will need transport to and from services such as hospitals, which may provide opportunities for transport services. 4.2.4 Workforce participation The level of workforce participation in any community is critical to generating economic activity. As the island is isolated, with significant population growth considered unlikely (and undesirable) and an aging population, levels of workforce participation will be critical in the future. Snapshot The level of workforce participation amongst island residents is slightly lower than the Australian average. In 2006, 55 per cent of the population aged over 15 years was in the labour force compared to the Queensland average of 62 per cent. Dunwich has a higher labour force participation rate (59.3 per cent) which is likely to be due to the fact there is a high proportion of mining workers residing in the township. While unemployment levels are actually quite low (3.3 per cent compared with the Queensland average of 4.7 per cent), so too are levels of full time work (28.6 per cent compared to the Queensland average of 38.1 per cent) reflecting generally high levels of part-time workers on the island (21.3 per cent compared to the Queensland average of 17.1 per cent) and associated lower levels of income. One of the key contributors to these statistics is the level of underemployment within the ATSI community which is reinforcing economic disadvantage (see section 4.2.2). The majority of the current island workforce is male (55 per cent). The weekly median individual income of island residents ($397) is 17 per cent lower than the Queensland average ($476), with significantly lower averages in the Amity Point ($376) and Dunwich communities ($384). Point Lookout has a higher median weekly income ($459) which is reflected by the relatively higher portion of middle and higher earning individuals (41 per cent earning $400 a week or more) compared with 34 per cent for both Amity and Dunwich.

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Based on income data from taxation returns in 2008-09, the island had an average annual taxable income of $47 735 which is 12 per cent lower than the Queensland average. Growth in taxable income is also lower with 38 per cent growth since 2000-01 compared with 55 per cent growth in Queensland. Island residents paid marginally less tax (19 per cent of average taxable income) compared with Queensland (21 per cent). The relatively lower median individual income level may be due to the larger proportion of older people on the island. It is likely that retirees are living off superannuation rather than employment income. Census statistics from 2006 also highlight the disparity between the average incomes of workers in the mining and accommodation and food service sectors (see Table 2). The average gross weekly income of a mine worker is over double that of an employee in the accommodation and food services sector. Table 2. Gross individual iucomes by sector, 2006

Gross individual incomes ($ per week)

Mining Accommodation and food services

Average 2006 1308 564

Source: ABS Census 2006

Compared to Redlands and Queensland, the age profile of the island shows there are less people of working age, particularly in the 15-44 year old range (see Figure 4). The island has a relatively higher proportion of residents aged over 50 year·s and lower levels of people aged between 0 and 14 years. The low proportion of young people on the island may reflect a number of factors, including limited work opportunities and a high cost of living. This may impact on the availability of local workers in the future .

Figure 4. Age disti·ibution, 2006 15% • NSI • Red lands • Qld 12%

9%

6%

3%

Source: ABS Census 2006

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Challenges and opportunities Island residents have identified the lack of full-time and varied employment opportunities on the island as leading to residents moving off the island, either on a daily basis for work, or on a pe1manent basis. With the phase out of mining, and without approp1iate economic growth over the next eight years, there is likely to be a reduction of the gross income from employment on the island as well as a fmther increase in competition for available jobs. Expansion of existing sectors or emergence of new industiies, coupled with appropriate education and training opportunities can assist in increasing the supply of local workers and the availability of relevant jobs. By growing full-time, well paid jobs and atti·acting diverse employment oppo1tunities, the community can reap the benefits of an improved economy and quality of life. Encouraging young people to stay on the island and providing approp1iate education and employment oppo1tunities will also be critical. 4.2.5 Indices of social and economic disadvantage The relative 'disadvantage' of a particular community provides a sense of how the population compares to the rest of Austi·alia. This section uses Socio-Economic Indices for Areas (SEIF A) as a way to compare the social and economic well-being of the island community compared to other communities in Australia. • Socio-Economic Advantage and Disadvantag~provides an overall impression of levels of advantage and disadvantage in the community derived from information such as income levels and educational background. • Index of Economic Resources- focuses on economic info1mation like the income, housing expenditure and assets of households. • Index of Education and Occupation-focuses on educational and occupational characte1istics of communities, like the propo1tion of people with a higher qualification or those employed in a skilled occupation. The info1mation is recorded to identify where a community sits relative to the rest of Austi·alia. The lowest 10 per cent of areas are given number of one, the lowest 20 per cent given number two and so on up to the highest 10 per cent of areas which are given number of 10. Snapshot As Table 3 clearly indicates, overall the island is associated with a ve1y high level of disadvantage as it is in the lowest 30 per cent of areas in Austi·alia. Significantly, this disadvantage is even higher in Dunwich, with Point Lookout sitting in the midway range compared to the rest of Austi·alia. Economic resources are particularly poor in both Dunwich and Amity.

Table 3. SEIFA Deciles by census collection disti·icts and post code area Locality Census Advantage Economic Education and collection and resources occupations districts disadvantage

Point Lookout 3202902 6 6 7

3202907 4 3 6

3202908 6 4 6

Amity 3202903 3 2 2

Dnnwich 3202904 2 2 4

3202906 2 2 2

NSI (Post Code 4183) 3 2 4

Source: Census of Population and Housing: Socio-Economic Indexes for Areas (SEIFA}, Australia, 2006

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Challenges and opportunities The Economic Transition Strategy recognises the disadvantage that currently exists within the island community. As economic resources are generally low, the focus must be on increasing labour force participation (managing employment and underemployment) and identifying job opportunities that are relatively well paid. Given the island’s status with regard to education and occupation, further work is clearly required to support educational opportunities (as discussed below). 4.2.6 Educational level It is broadly recognised that a strong and resilient local economy requires complementary educational opportunities. Statistics indicate that, generally speaking, education levels on the island are below the average in the Redlands district and Queensland. Snapshot Education levels on the island are generally low. This is particularly evident in the number of island residents who have completed year 12 when compared with the Redlands district and the Queensland average (see Figure 5). There is both a state primary school and a high school located in Dunwich. In 2011, 132 students were enrolled in the primary school and 20 enrolled in the high school (which only caters to students until year 10). Year 11 and 12 students receive a transport subsidy to attend schools on the mainland. Approximately 45 per cent of the student body on the island is of ATSI decent and there has been a major decline in the proportion of non-Indigenous enrolments since 1997 (from 72 per cent in 1997 to 55 per cent in 2008). While tertiary education levels for the island are slightly above the Queensland and Redlands district averages, this is mainly at a certificate level (see Figure 6). The lower level of education on the island may be reflective of the relatively high proportion of ATSI people who traditionally have a lower level of education. Fewer Indigenous people (10 per cent) on the island have completed year 12 than non-Indigenous people (32 per cent).

Figure 5. Highest level of schooling (15 years and over), 2006

Source: ABS Census 2006 *Excludes ‘not stated’

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Figure 6. Non-schooling qualifications (percentage over 15 years), 2006

Source: ABS Census 2006

Figure 7. Non-schooling qualifications (percentage over 15 years), by town, 2006

Source: ABS Census 2006

Island residents have identified key barriers to education and training participation. These include the costs and time associated with transport and accommodation for courses on the mainland, as well as the lack of access to facilities including computers on the island.

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The island is the site for some existing, though small-scale, businesses involved in education and training services. The two most substantial are the hosting of field trips for Year 11 and 12 students at the Moreton Bay Research Station and school science camps for primary and up to Year 10 students, many of which are organised through Stradbroke Holidays. These have specific ‘island’ activities in the curricula for the camps and field trips. A range of other activities occur, including group visits by overseas students from private colleges and public universities. It is difficult to quantify these and they do not seem to have any specific island content. While jobs in education are not as highly paid as mining jobs, they are more secure and better paid than jobs in tourism. Furthermore, the ratio of female to male earnings is higher for education compared with accommodation and food services and mining. Expanding the education industry on the island has the potential to lift the prevailing standards in the local labour market, including reducing gender inequalities and advancing Indigenous employment. Further information on the availability and suitability of training on the island, including an inventory of existing educational facilities and services, is available at . Challenges and opportunities The availability of a skilled and adaptable workforce is a critical factor in the development of a viable economy. The provision of increased access to education and training programs with meaningful employment outcomes will be essential in encouraging participation in post-schooling education. Identifying ways of encouraging students to stay on the island to support both the primary and high school should also be recognised as a priority and to support the schools in their endeavours to provide a high quality education. The education and training sector has emerged as one of the industries with potential for expansion on the island because it can contribute economically as a source of income and employment. Education can help tourism to increase the range and quality of its products, especially those that involve visitors learning about the island. The small size of the island population and the limited range of industries and employment opportunities may limit the scope of education and training for residents. Construction trades and computer skills are two areas where training could be implemented in the short term. The objective in construction may be to provide opportunities in a more diverse range of trades than currently exists. Particular emphasis could be placed on meeting learning needs of Indigenous youth. There is also potential to expand the number of school camps and field studies which would increase income and employment from the education and training sector. One short-term need is to recognise and support the re-training needs of any mine workers that are seeking opportunities to transition to other employment should they choose to remain living on the island. 4.3 Infrastructure Infrastructure underpins all economic activity and is fundamental to a sustainable economy. There is ‘physical’ infrastructure such as roads, water and sewerage, energy, transport and telecommunications, and ‘social’ infrastructure such as education, health and community services. 4.3.1 Physical infrastructure Adequate physical infrastructure is critical to the level of economic prosperity enjoyed within any particular region. It is considered a key enabler for industry growth and attracting business investment. A lack of appropriate infrastructure is recognised as a constraint to business investment through increasing costs and impacting on market viability. While the prime responsibility for the provision of basic infrastructure lies with government, historically the island community has also had the support of private industry, and in particular, the mining industry, in the development of physical and social infrastructure.

19 Draft Situational Analysis—not government policy

Snapshot The basic physical infrastructure needs of the island are similar to most isolated communities, with the main concerns being focused on connectivity in terms of transport and telecommunications. Other areas of concern that have been raised by residents are the sewerage capacity, internet service provision and mobile phone coverage. Transport and connectivity Affordable transport has been identified as a key barrier to addressing the island’s relative isolation and accessibility. The most common form of access to the island is via vehicular barge (vehicles and passengers) or water taxi (passengers only). Services are currently at hourly intervals between 5.30 am and 7.00 pm. There is a concern that plans to merge the existing two barge operations and the end of mining will result in a significant price increase, as well as a potential reduction in services. The current seat capacity for transport to the island (over two million seats per year) is well in excess of the capacity to other island destinations including Moreton, Fraser and Hamilton which all cater for less than one million seats. On the mainland the ferry services have connections with regular public transport and on the island there is a bus service that connects with all ferries. There is also a small airport on the island located six kilometres outside of Dunwich. The strip is 900 metres long and made of gravel and grass. On average, the airport has between 20 and 40 aircraft movements per month— however this can fluctuate, particularly when large wedding parties are flown in. Landing permission is required from the Straddie Aero Club and costs between $10 and $20 depending on the type of aircraft. Membership fees ($120 per year) include landing fees and hangar sites can be sub-leased from Stradbroke Air P/L for an annual fee of $3400 and an initial upfront fee of $3595. The hangar site leases are with the Queensland Government and a number of sites are still available for lease. The island is a hub for boating and fishing and many people access the island via private vessels. There is a public boat ramp and jetty at Amity and the Little Ship Club at One Mile in Dunwich has a floating pontoon with a ramp access up to the club. There are no boat ramps or jetties at Point Lookout with only beach landing on suitable beaches. Harbour facilities The upgrade of facilities at Toondah Harbour has been identified by Redland City Council as its highest strategic priority project (Priority projects for the Redlands: Redlands – to 2030 and beyond, August 2011). This status reflects the importance of the Toondah Harbour precinct in terms of marine transport facilities, its critical role in providing water based transport, the opportunity it provides as a major redevelopment site, the need for master planning to enable it to become a mixed use development site and the particular sensitivities around the site based on its status as an ‘area of state significance’ under the South East Queensland Coastal Management Plan. Sewerage capacity Redland City Council maintains a sewage treatment plant, pipeline and reservoir at Dunwich on the island. Evidence suggests that the current sewerage facilities are inadequate, particularly with regard to sewer capacity. Mobile phone service Residents have raised concerns about poor mobile phone coverage on the island. Mobile phone coverage varies from company to company. Coverage is best around villages on the island and is patchy outside of townships. Internet access Census data indicates that the island has significantly lower levels of access to internet at home than for households on the mainland. In 2006, 47 per cent of households on the island had no internet connection, compared with 29 per cent for Redland City as a whole. Only 20 per cent of island residents had broadband connection, compared with 45 per cent for Redlands. Consultation with local residents indicates that the quality of internet connections for the island is also poor. Details of the planned National Broadband Network service for the island are currently being clarified.

20 Draft Situational Analysis- not government policy

Island roads Road infrastrncture on the island includes a 38-kilometre network of sealed roads. Any future extension to the road system will be shaped by the evolving economy. 4.3.2 Social infrastructure The provision of social infrastrncture is essential for the health, social wellbeing and economic prosperity of all communities. It plays an impo1tant role in b1inging people together, helping fo1m friendships and social suppo1t networks, and in helping communities to develop life skills and resilience. A strong and resilient economy requires the provision of a good range of community infrastrncture and se1vices to suppo1t the community and to attract employees and investment through the development of business networks, providing info1mation and suppo1t, assisting in education and training and providing an environment or lifestyle that attracts and retains employees and their families. Snapshot In a similar fashion to physical infrastrncture, most of the islands' social infrastiucture needs are influenced by it being an isolated community. The relative isolation of the population means there is a demand for a wider range of se1vices than those that would be typically be required for a similarly sized community on the mainland in South East Queensland. Community facilities and services Based on a comparison against desired standards of se1vices for South East Queensland, the island appears to have a high level of community facilities and se1vices (see Table 4). Table 4. Audit of community services Type of facility Number of Current Desired standards of service facilities rate of benchmarks provision SEQsocial Adjusted infrastructure benchmark guidelines

Community halls/centres/ 4 503 6000-10 OOO 2000 meeting space

School 2 2013 10 000-20 OOO 10 OOO

Museums 1 2013 30 000-120 OOO 30 OOO

Att gallery 1 2013 30 000-120 OOO 30 OOO

Cultural centre 0 0 20 000-50 OOO 20 OOO

Libraries 3 671 10 000-20 OOO 10 OOO

Atubulance 1 2013 25 000-30 OOO 10 OOO

Police 1 2013 25 000-30 OOO 10 OOO

Fire service 1 2013 25 000-30 OOO 10 OOO

Healthcare 3 671 50 OOO-100 OOO 50 OOO

Aged care/respite 3 671 20 OOO-100 OOO 10 OOO

Youth 1 2013 10 000-20 OOO 10 OOO

Childcare 1 2013 4000-8000 3000

21 Draft Situational Analysis—not government policy

While the above benchmarking suggests a comparatively high level of service provision, access to services remains an issue, particularly in terms of an equitable distribution of health and community care services across the island. Key social infrastructure identified as needing further assessment in terms of adequacy includes: • youth facilities, care and support • health, mental health and aged care • education facilities with a technical focus • library services • safe and affordable housing. Minjerribah Knowledge Centre The Quandamooka People are in the process of establishing an Indigenous knowledge centre on the island (Minjerribah Knowledge Centre) to facilitate the preservation and development of Quandamooka history, language, culture and tradition. A feasibility study was endorsed by the Redland City Council in February 2011 which included a number of recommendations to progress the development of the initiative in partnership with the Quandamooka community. The council is committed to working with the Quandamooka People, state and federal governments on aspects of the proposal which proposes three key components: • a self-managed community knowledge centre to support the cultural preservation needs of the Indigenous community • a public cultural centre or precinct in a prominent position at the entrance to Dunwich designed to support the whole island community as well as presenting Indigenous culture and knowledge to visitors and tourists. • an online web-based catalogue to protect and organise Indigenous knowledge material in various form ats according to the needs and specifications of the o wners of material. The establishment of the knowledge centre would significantly enhance social infrastructure on the island. Challenges and opportunities Because infrastructure is typically associated with a 'public good' (both economic and social), governments (commonwealth, state and local) generally take responsibility for ensuring its supply. The de mand for new infrastructure is widespread across most communities, and governments’ capacity to meet the demand is limited due to its substantial cost and the current fiscal environment that is under strain at all levels (globally, nationally , statewide and locally). Prior to go vernment (at any level) making a decision about supporting infrastructure invest ment on the island there will be a need to be an assessment of its value and consideration given to the expenditure of public money within the context of competing proposals. The scope of the Economic Transition Strategy d oes not allow for a detailed infrastructure assessment to be undertaken as part of this body o f work. However, the strategy has identified the following infrastructure needs, which should be investigated within the broader context of local, state and commonwealth government priorities: • harbour facilities at Dunwich and Cleveland • sewerage capacity • mobile phone service • internet access • roads • youth care and support • health, in particular mental health • aged care • educational facilities with a technical focus • safe and affordable housing.

22 Draft Situational Analysis—not government policy

Businesses on the island and the community in general, need to be realistic about the likely level of government infrastructure investment and should therefore prioritise needs by identifying what is critical and what is desirable. Furthermore, there needs to be investigation of innovative and cost effective models of infrastructure delivery such as joi nt ventures, private–public partnerships, cross-subsidy innovations and private investment. The small size of the island population base creates particular challenges in terms of justifying community service and social infrastructure investment if considered in isolation from other factors. The case for increased social infrastructure investment needs to be articulated within the context of the isolated nature of the community, the high number of visitors and tourists, and specific issues of disadvantage, particularly in relation to the ATSI population, which all typically heighten infrastructure needs. The Minjerribah Knowledge Centre project clearly demonstrates the significant potential to enhance social infrastructure on the island through innovative initiatives. While the scope and timing of this strategy does not allow for a detailed community needs analysis, it is clear that such an analysis should be undertaken and could potentially be overseen by the reference group. The relationship between infrastructure needs and the Planning for Action document (draft action plan) is complex. The draft action plan is premised on a recognition that enhanced infrastructure for the island will promote individual industry action areas. However, the emphasis on sustainability, and improving the island’s self- sufficiency, means the draft action plan has minimised its reliance on major investment in infrastructure as a pre- requisite for its success. There are a number of key physical infrastructure issues that Redland City Council has already identified as requi ring further consideration. These include: • marine transport infrastructure—(e.g. Toondah Harbour and Dunwich) • tourism infrastructure—(e.g. Point Lookout Headland–Terrangee paths trails, and associated facilities including world class whale watching facilities, National Park access and associated facilities, Tourist Welcome and Information Facilities) • cultural infrastructure—(e.g. Minjerribah Knowledge Centre, North Stradbroke Island Museum) • social infrastructure—(e.g. recreation facilities, community facilities, youth and family facilities, entertainment facilities) • civil infrastructure—(e.g. town centre beautification, traffic and pedestrian management, foreshore access and stabilisation). A more detailed schedule of infrastructure requirements identified by the RCC is attached (Appendix 1). Understanding the nexus between the end to mining and the feasibility of ferry services is also identified as a priority. This issue will become particularly significant in the lead up to the closure of Enterprise mine in 2019, at which time the number of trucks relying on the ferry service will dramatically reduce. The viability of a regular and affordable ferry service remains critical to future industries on the island and residents alike. Should the viability of the ferry service become a risk, a potential subsidy should be considered by future governments. A preliminary analysis of the implications of the economic transition for these issues will be undertaken by the Economic Transition Taskforce and its findings will be provided to local, state and commonwealth governments. 4.4 Land Land is a fixed resource and the way in which it is used can have a profound affect on a local economy. All economic activity is subject to the availability of land and in particular, land which is physically suitable and appropriately designated for the proposed purpose. Snapshot The island is approximately 26 000 hectares, most of which is currently designated as State land. The three townships of Dunwich, Amity and Point Lookout have been established on small pockets of freehold land which equate to less than one per cent of the island. A significant proportion of the State land is dedicated to conservation tenure. National park currently covers 5240 hectares (20 per cent) of the island, with 50 per cent to be national park by the end of 2011, and 80 per cent by end

23 Draft Situational Analysis—not government policy

of 2026. The remaining 20 per cent of the island, which is mainly unallocated State land, will be the subject of a Land Use Planning Study which will be used to determine the most appropriate use for each area. Mining leases have historically covered a significant area of State land (approximately half the island has been subject to mining leases) with the actual location of mining activity moving over time. The active mining leases are currently Enterprise, Yarraman and Vance mines. In addition, four other sites have been previously mined (Amity, Bayside, Gordon and Ibis). There is a golf course east of Dunwich and an area of pine plantation in the same vicinity. The island has a number of freshwater lakes and wetlands. Redland City Council began extracting freshwater from the southern half of the island in 1990 to supply water to its mainland urban areas. The Quandamooka People lodged two native title claims under the Commonwealth Native Title Act 1993 in 1995 and 1999. These included the island and surrounding waters, but excluded all freehold land. On the 4th July 2011, the Federal Court of Australia determined the Quandamooka People as the native title holders, recognising their long and enduring connection with the land and seas of the island and recognising their rights and interests in their traditional country. Figure 8 shows the townships settlements and other land use planning.

24 Draft Situational Analysis—not government policy

Figure 8. Council land use zoning map

Challenges and opportunities One of the key considerations in developing a more diverse economic base for the island, and encouraging future investment, is to ensure land is available for development opportunities for sustainable industries. A land use planning process, primarily focussed on the part of the island that will not be covered by national park, will be undertaken. The planning committee has representatives from DERM, the Department of Local Government and Planning (DLGP), Redland City Council and the Quandamooka Yoolooburrabee Aboriginal Corporation (QYAC). The process will be informed by environmental and cultural considerations as well as economic outcomes and it will ultimately give guidance to whether specific areas of land are suitable for purposes such as residential, commercial, cultural and/or recreational or open space.

25 Draft Situational Analysis—not government policy

There is clearly a close link between economic development opportunities and the land use planning process. While this process will be a fundamental determinant of the nature and scale of sustainable economic development on the island it will, at the same time, be informed by the specific initiatives identified in the draft action plan. The Land Use Planning Study will be mindful of all proposed actions and will endeavour to allow enough appropriately designated land to implement the action plan initiatives. The first stage of the Land Use Planning Study will be an initial constraints analysis. This will provide an early warning if particular sites are not considered suitable for development. Also, given the longer timeframes for the planning process, the actions included in the draft action plan have been designed so they are not dependent on specific outcomes in the land use planning study. There may be new development opportunities that become apparent once the land use study has been completed and planning schemes are amended. While the establishment of the new national park (Naree Budjong Djara National Park) will limit the availability of land for future development it will also provide many opportunities for the economy including new nature-based business opportunities, and increased recreational opportunities. Each year, there are over 16.2 million visits to Queensland parks and forests. The most recent research into the economic value of national parks to the Queensland economy found that direct spending by tourists visiting Queensland national parks is $4.43 billion annually which is 28 per cent of total tourist spending in Queensland. The Quandamooka People’s ILUA with the Queensland Government recognises their rights as traditional owners, custodians and managers of their traditional country, protecting the outstanding environmental and cultural values of the island. Under the ILUA, the Quandamooka People have provided their consent for a number of tenure related actions to allow for future development of the island, to regularise government infrastructure and the road network. The confidential ILUA will likely have direct implications for future industry opportunities on the island in recognition of the Quandamooka People’s native title rights and interests. The ILUA is scheduled to be registered in December 2011. Until this time, the Quandamooka People’s specific aspirations and industry plans remain confidential and the Quandamooka People reserve the right to enter into any industry planning on a voluntary basis.

26 Draft Situational Analysis- not government policy

5 Industry and employment profile In planning for an economic transition, there is a need to understand the CUITent industry and employment profile in order to identify key opportunities and challenges for the future growth of existing business and the emergence of new industry sectors and employment options for the local community. The cunent industry and employment profile of the island is described in the sections below. 5. 1 Employment by industry Snapshot The 2006 ABS employment data highlights the importance of both the mining and toUiism industry sectors for employment on the island. With mining providing 14 per cent of all jobs located on the island and accommodation and food services providing 16 per cent, these two sectors represent the largest contribution to the economy in employment terms (Table 5). These industry sectors are significant employers when compared to the Queensland average. Other industry sectors such as agriculture, forestry and fishing; manufacturing; retail tr·ade and arts and recreation services CUITently make up only small percentages of employment on the island. Table 5. NSI jobs and employment, 2006 Employment by sector NSI% QLD %

Accommodation and food services 16 7

Mining 14 1.7

Constiuction 10 9

Wholesale trade 10 4

Health and social services 10 10

Education and tl'aining 8 8

Other 32 60.3

TOTAL 100% 100%

Source. ABS Journey to Work, 2006 Figure 9. Island employment by industry, 2001 and 2006 180 160 • 2001 • 2006 140 1 20 ...c: ~ 100

Source: ABS Census, 2001 and 2006

27 Draft Situational Analysis—not government policy

Figure 9 highlights the changing employment profile between 2001 and 2006 on the island. Of particular significance is the change in balance between the mining and accommodation and food services sectors with the number of jobs in mining decreasing, and the number of jobs in accommodation and food services increasing, over time. Challenges and opportunities While not a mono-economy, the industry profile of the island lacks diversity. The island's current economic base is not sufficient to allow for a sustainable future for the island given the phasing out of mining and the clear limits to the contribution of tourism given its seasonality and comparatively lower paid jobs. Recent events have demonstrated the vulnerability of economies that have a strong reliance on tourism. The combination of the global financial crisis and last summers weather events in Queensland, have placed businesses that rely on tourism under extreme stress—a situation that is by no means limited to the island. While tourism will play an important role in the island’s future, especially within the context of the creation of a new national park, it will not be sufficient to solely support the economy as mining is phased out. The development of a diverse and resilient island economy will require new business initiatives and the growth of new and existing sectors across all three island townships. With the phase out of mining over the next eight years, employment in the mining sector will continue to decline. This provides an opportunity for new industry sectors to emerge and grow and for the further development of existing industry sectors that have growth potential. 5.2 Business and indu stry Snapshot A desktop audit of existing businesses on the island in 2011 highlights the importance of the tourism industry with over 50 per cent of the 208 island bus inesses ei ther directly or indirectly related to the tourism sector—including accommodation, retail, food and beverage, tours and attractions (Figure 10). General services and trade also make up a large proportion of the island businesses, m any of which are likely to support the mining sector. The spread by township shows that Point Lookout accounts for just over 50 per cent of all island businesses with the majority of tourism related businesses in Point L ookout an d Amity Point, and a concentration of other service-related businesses in Point Lookout and Dunwich. Figure 10. Audit of island businesses by in dustry, 201 1

40 35

30

25

20

15 10

5 Point Lookout Dunwich 0 Amity Point ion ators Trade Retail Other t Services modat Beverage ral Services & Attraction Education ccom ene Tour Oper rnmen A G Food

unity / Gove Comm

Source: EC3 Global Desktop Audit, 2011

28 Draft Situational Analysis—not government policy

5.2.1 Tourism The island’s combination of iconic wildlife, large marine life and traditional and contemporary landscapes and lifestyle, together with easy and affordable access, make it stand alone as a destination. While each factor alone can be found in other regions, it is the combination of all that makes the island a truly special place. The success of North Stradbroke Island as a tourist destination will depend on the success (or otherwise) of the broader 'Moreton Bay and Islands' located within the Brisbane tourism region. The regional and local context will have a significant impact on the viability of tourism (and other industries) on the island. A considerable amount of work has already been completed in the region that provides the context for island tourism planning and development. Over the past five years the Queensland Government and the Redland City Council have developed: • Tourism Strategy for the Redlands (2010–14) (Redland City Council) • Moreton Bay and Islands Regional Tourism Investment and Infrastructure Plan (Tourism Queensland and Brisbane Marketing) • Destination Management Plan (Tourism Queensland) • North Stradbroke Island Tourism Job Transition Stage 1 Scoping (Department of Environment and Resource Management). Visitation and economic contribution The island currently attracts an estimated 350 000 visitors per year, spending 550 000 nights per year (including domestic overnight visitors (75 per cent), day-trippers (22 per cent) and international overnight (35 per cent) making it one of Brisbane's most popular family attractions. Visitors stay an average of 2.2 nights (domestic) and 4.0 nights (international). Based on research from island tourism operators, 70 per cent of visitors are making a return visit to the island and 30 per cent are first time visitors. This level of repeat visitation is consistent with other popular destinations close to a large city. Although official visitation data is not available for the island, anecdotal and local data suggests that the island is experiencing similar trends to Redlands, including growth in international visitation and long-term growth in domestic visitation despite a recent short-term decline. Based on anecdotal evidence, domestic visitation to the island from Brisbane is decreasing yet increasing from other regions in Queensland by around eight per cent per year.

Figure 11. 2011 Redlands Visitors 2002–2009

29 Draft Situational Analysis- not government policy

In the year ending March 2010, the Brisbane Region attracted 5.05 million visitors. Of these, it is estimated only three per cent visited the Redlands and North St:radbroke Island. No1th Stradbroke Island is better known to Brisbane residents than the Great Banier Reef and most residents hold positive perceptions of the island. However, visitors are commonly hindered in visiting due to perceived cost, distance and time restrictions. Interstate visitors make up only a small percentage to the island, highlighting a lack of awareness by interstate markets and an opportunity for broadened marketing effo1ts (Tourism Sti·ategy for the Redlands 2010-14). Visitation seasonality has a large influence on tomism business viability and places increased pressure on community infrasti11cture and se1vices in peak periods. Anecdotal and local data suggests that the island gets peaks of 80-90 per cent occupancy in tourist accommodation dming peak season, but drops as low as 10-15 per cent during the off-peak season. The economic contribution of tourism to the island can be estimated based on national estimates of the economic multiplier of tomism expenditure (see Table 6).

Table 6. Estimated value of tourism to NSI (based on current expenditure)

Approx jobs Type Visitors Spend/day Direct value (FTEs)

Day trip (22 % ) 77 OOO $67 $5.2M 42

Domestic (75 %) 262 500 $76 $20M 163

Intem ational (3 % ) 10 500 $95 $1 M 8 TOTAL 350 OOO $26.2M 213 Source: EC3 Global based on Local Estimates and Tourism Satellite Account Model (Qld) for Jobs Understanding the tourism market No1th Stradbroke Island has a reputation for being a relaxing and beautiful weekend getaway. Its unspoilt beaches and flora and fauna add to the island's attractiveness, and as increased numbers of people move into cities and regional areas, quick weekend getaways like No1th Stradbroke Island have the potential to become deeply ingrained in people's short-break calendars. According to segmentation unde1taken by Tourism Queensland, there are six key target visitor markets in Queensland. These six are Social Fun-seekers, Connectors, Unwinders, Active Explorers, Stylish Travellers and Self-Discoverers. No1th Sti·adbroke Island, as pa1t of Brisbane's Moreton Bay and Islands has adopted this approach to identifying the different target markets for the island, including their different needs, wants, motivations and characteristics. Figure 12. Tourism Queensland market segmentation

Social Fun-seekers 2:1 %

Stylish Travellers Co!Vl&etou 5% 32%

Un winders Self Discoverers 1:1% 12%

30 Draft Situational Analysis- not government policy

The table below highlights the identified market positioning and target markets from the range of recently completed tomism plans and strategies that include North Stradbroke Island.

Table 7. Regional target markets

Strategy Positioning Targets

Brisbane Destination 'New world city' with easy access to coastal, Social Fun-seekers (Interstate) Management Plan island and natural experiences. Connectors (Intrastate)

Brisbane Marketing - Locals Inspiring and educating residents (hosts) of Connectors (VFR) Campaign vast range ofproduc ts and experiences Social Fun-seekers (Interstate) Connectors (Intrastate)

Moreton Bay and Islands Demonstrating the tmique aspects of the area - Social Ftm-seekers & Campaign raw, spirited and refreshing Active Explorers (Prima1y) Connectors (Secondary) Redlands Tourism Plan 2010 Position Redlands as a shoit-break destination Connectors - Families (Children 1-15 years) & forSEQ Couples (without children) Active Explorers - Backpackers

The Economic Transition Strategy has identified the target markets for the island as p1imarily domestic, including the Connectors and Unwinders, with seconda1y markets being Active Explorers and Social Fun Seekers. International Experience Seekers are an emerging market along with those outlined below. Along with their key target markets, the island's tomism operators have also identified a number of emerging markets that could be targeted for tomism growth in the region. These include international travellers seeking Voluntomism and education expe1iences (including both schools and universities), along with domestic Connectors travelling for events, weddings, and cultmal or environmental expe1iences (also identified in the Tomism Strategy for the Redlands 2010- 14). The business market (not a Tomism Queensland market segment), pa1ticularly those travelling for small meetings, is another emerging market. Tourism infrastructure and services The island is home to over 2000 residents which grows to over 10 OOO per week dming peak holiday seasons. The island boasts around 6400 beds in 2000 rooms with a majority of visitors staying in holiday homes (30 per cent) or campgrounds (30 per cent) in and around the major population centres of Point Lookout, Amity and Dunwich. Occupancy rates on the island differ greatly from those on the mainland (Redlands mainland data shown below). Where the mainland averages between 50-60 per cent, the island gets peaks of 80-90 per cent occupancy dming peak season but gets as low as 10-15 per cent dming the off-peak season.

31 Draft Situational Analysis—not government policy

Figure 13. Redlands rooms and occupancy rate 2006–2009

The provision of appropriate infrastructure and services is essential in supporting tourism growth and development as well as providing for the community’s needs. One of the key strengths of the island is its proximity to the major population centres of South East Queensland. Access to the island is by vehicular ferry or water taxi between Cleveland and Dunwich, which is then connected to a 38 km network of sealed roads on the island. The island is currently well serviced with more seat capacity than other islands in Queensland.

Figure 14. Ferry seat capacity

Future visitor infrastructure in the national park With the planned expansion of the national park, there will be increasing opportunities to see areas of the island that were previously inaccessible, once appropriate visitor management arrangements are in place. DERM and the Quandamooka People will be joint managers of the protected areas on the island, and together are planning for the future management of these areas. Further initiatives for the proposed protected areas to be planned cooperatively include: • investigating the development of day-use areas, both to improve servicing of current visitor nodes and to support the development of new walking and camping opportunities • planning for interpretation that helps visitors to learn about and respect Quandamooka culture and country, and to enjoy the significant natural values of the island

32 Draft Situational Analysis—not government policy

• planning for a permanent park base—in the interest of realising joint management, there are aspirations for an integrated park base that would bring together the QYAC and DERM as joint managers of the protected areas of the island, as well as providing a place for visitors to get comprehensive information on the island and its parks. Off-park opportunities for recreation infrastructure across the island will be identified through the land use planning process. Challenges and opportunities The island will continue to attract visitors throughout the economic transition from sand mining. The tourism industry offers viable opportunities to contribute to maintaining or growing employment and economic growth on the island. The expansion of the national park will provide increasing opportunities for nature-based tourism and recreation once appropriate visitor management arrangements are in place. In addition, the determination of native title provides the opportunity to recognise the aspirations of the Quandamooka People and potential business ventures within nature-based and cultural tourism. To increase the contribution made by tourism to the island presents a real opportunity, but rapid growth represents an even greater risk. Through consultation with a range of industry experts the following guiding principles were articulated for appropriate development of tourism on the island: • The success of any product relies on the awareness of the island and destination. • Build from the Base: don’t look for external investment solutions. • Leverage the current assets = beachfront and villages and relaxed environment. • Be true to the island style and don’t try to be something else. • Create value, don’t just attract volume. • Make Straddie special, and help visitors appreciate what they have found. • Create memorable moments (for all the right reasons). The vision for the tourism industry on the island is to focus on the sustainable use of the island's natural and cultural resources ensuring the viability of the industry. The tourism actions included in the draft action plan aim to: • respect culture • increase spend per day • broaden the visitor base (not necessarily increase numbers) • convert those aware of the island to visit • reduce seasonality • become a showcase for environmental sustainability.

33 Draft Situational Analysis—not government policy

5.2.2 The contribution of mining to the economy The following economic analysis was prepared by the Department of Employment, Economic Development and Innovation at the request of the taskforce: There are potential local business opportunities which could lead to a positive economic impact in the coming years and may negate the impact of a cessation of sand mining on the Island. The major analytical research into the overall economic impact of ceasing sand mining activity was conducted by Synergies consultancy for Unimin Pty Ltd2 in June 2010, which is a sand mining company and is now called Sibelco Australia and New Zealand. The research’s objective was to assess the economic and employment impacts of ceasing mining operations in North Stradbroke Island, on the local economy and community. Synergies economic consulting report titled Impact on North Stradbroke Island from Ceasing Sand Mining (June 2010), examined the impacts on production, incomes, employment and revenues received by governments have been assessed using an input–output (I–O) analysis. Both the direct and indirect effects are included. In the model, strong linkages are claimed between mining and other NSI industries. Mining occurs for heavy metals rutile, zircon, ilemnite and silica from sand. Over the past five years to 2010, minerals revenue has averaged around $125 million. The input–output table used in the analysis was specifically constructed to represent the North Stradbroke Island economy using small area data3. To allow for price effects when production of goods and services either expand or contract a non-linear input–output model developed by the Centre of Policy Modelling at the University of Queensland has been used in this analysis. In the input–output model, the mineral sands industry has double the average linkage to other industries in terms of being supplied by and supplying to other industries in the North Stradbroke Island economy. In conventional input–output theory, any industry with a linkage index to industries as a whole in an economy which is much greater than one, is said to have an above average economic influence on other industries including itself. The economic significance of the mineral sands industry is further borne out by the forward linkage for output, and the backward and forward linkage indexes for value added, income and employment being close to two4. The model estimates sales5 of mining industry goods and services will fall by $125 million by mining activity ceasing (see Table 8). As a result of this fall the industry will purchase $43.9 million fewer goods and services from other industries6. Another result of the fall in mining activity is less income to households from the mining industry. With less income households will consume $57.2 million less in the North Stradbroke economy7. When adding these three impacts of the cessation of mining on North Stradbroke Island, Synergies estimates the total impact will be a $226 million loss in production of good and services. A second impact of the cessation of the mining industry on North Stradbroke Island will be $77.5 million less in the local value8 of goods and services produced (see Table 8). This fall will mean the mining industry and other industries purchase $17.3 million less in the form of local value added production on the island. It will also mean households with lower incomes purchase $34.9 million less in goods and services in the form of local North Stradbroke Island added value. The addition of these three impacts on the local value added to the island's goods and services in $129.7 million.

2 Unimin currently produces up to 600 000 tonnes of sand annually for glass production in Brisbane, for white mortars, and for glass and mineral production in export markets such as New Zealand and Japan. 3 At the Census collection district 4 With the exception of the backward output linkage (index = 1.5) 5 Gross output in Table 11 6 Giving a Type 1 output multiplier of 1.35 7 Giving a Type 2A multiplier of 1.81 8 Value added is different from output because it shows how much of the revenue is due to North Stradbroke Island input (in the form of wages and salaries, profits, dividends and depreciation).

34 Draft Situational Analysis- not government policy

With the cessation of mining activity on the island there will be a $62.8 million decrease in incomes9 from selling mineral sands. With the mining indust.Iy purchasing less from other fnms on the island they will experience a $17 .3 million fall in their incomes. It will also mean less income for households in North St.I·adbroke Island who will reduce their consumption by $22.4 million. When adding these three impacts together the total impact of ceasing mining activity will be $97.6 million less factor income. Employment on North St.I·adbroke Island will also be affected by the cessation of mining activity on No1th St.I·adbroke Island with a fall of 289 jobs being proposed by Synergies. Of these 289 lost jobs, Synergies believes 145 will be in the fnms being shut down. In addition to this there will be 53 fewer jobs in indust.I·ies which supplied goods and se1vices to the closed mining fnms. With less household income from these closed mining fnms and their consequently lower consumption of goods and se1vices, the No1th St.I·adbroke Island fnms supplying these goods and se1vices will employ 91 fewer people. This impact on employment will also be felt in the rest of South East Queensland where the shut down mining fnms reduce their staff by 130 people. As a result of this fall in employment the rest of South East Queensland fnms they buy goods and se1vices from will reduce their employment by 36 people. The lower consequent ceasing of mining activity on household income and consumption will mean 66 fewer jobs in the rest of South East Queensland. These employment impacts on the rest of South East Queensland mean 232 fewer jobs in the region as a result of stopping sand mining on No1th St.I·adbroke Island.

Table 8: Economic and employment impacts of cessation of mining activity

Direct impact Flow-on Flow-on Total industry Consumption Effects Effects

Gross output ($ M) 125 43.9 57.2 226.1 Value added ($ M) 77.5 17.3 34.9 129.7 Factor income($ M) 62.8 12.4 22.4 97.6 Employment (Stradbroke) (no.) 145 53 91 289

Employment (South East 130 36 66 232 Queensland) (no.)

Source: Synergies Consulting, Impact on North stradbroKe Island from ceasing sand mining, June 2010.

The apparent high falls in indirectly affected industries from the cessation of sand mining activity just desc1ibed are due to st.I·ong linkages between the mining indust.Iy and other indust.I·ies. The st.I·ongest linkage is with the manufactming industiy which is estimated to lose 17 per cent of the jobs outside of the mining indust.Iy.

9 Factor incomes are diVidends, interest. the retained profits of companies.

35 Draft Situational Analysis- not government policy

Table 9: Distribution of indirect losses from cessation of sand mining by sector-%

Employment Value Added Manufacturing 17 15 Trade 15 13.5 Transport and 15 13.5 Communication Construction 13 14.5 Utilities 11 10 Finance and 8 7.5 Business Services Education and 5 6 Tourism Health and Social 4 5 Services Other 4 3.5 Agriculture 2 1.5 Tourism 2 3 Arts and 2 3.5 Recreation Services Personnel 2 3.5 Services Total 100 100

Source: Synergies Economic Consulting, Impact on North Stra

To offset the loss of these jobs, the tourism indust:Iy is often touted as a growth indust:Iy. The repo1t argued the tourism industry will grow slowly and not create sufficient new jobs to offset mining indust:Iy jobs. This argument relies on declining growth rates of visitor tr·ips and nights per person for Austr·alia and Queensland, and factors underlying weakness in tourism, from 1999 to 2009. In addition to the slow growth in tourism job numbers, Synergies argues incomes in the tomism industry tend to be lower than in the mining industry. Beyond tomism, the repo1t states the impact of the cessation of mining on No1th Str·adbroke Island will be higher water transport costs, reduced transpo1t se1vices, and higher re-fuelling costs; however, it also points out these negative impacts could be offset by reductions in house p1ices making holiday accommodation cheaper. In addition to this a greater number of tomists could be attracted to No1th Str·adbroke Island by greater environmental amenities from the cessation of mining activity. Given these large economic impacts suggested in the Synergies repo1t, DEED! has prepared comments on the methodology. The comments have been limited due to the lack of detail on data and methodology provided in the repo1t . Such limitations nonetheless do not restr·ict commentary on the scope, str11cture and plausibility of the findings from the model used in the Synergies repo1t . A key comment on the plausibility of the findings is that it is questionable whether $125 million in output flowing from sand mining activity has been completely contained within the No1th Str·adbroke Island. With revenue flowing to the head offices of the sand mining companies it is unlikely much of the $125 million of the sales revenue would stay within No1th Sn·adbroke Island. This concern over the plausibility of the output impact of the cessation of mining activity on No1th Stradbroke Island feeds into concerns over the size of the impact on gross value added and incomes. It is also unlikely much of the $77.5 million profit component of value added would stay in No1th Str·adbroke Island. While there are losses to the region, the repo1t also highlights the projected increase in fuel, elecn·icity and transpo1t costs on the island for remaining residents resulting from no mining, along with possible

36 Draft Situational Analysis—not government policy

reduced school services, and the regional income decline and social dislocation of miners leaving the area. Another broad comment is the absence of a discussion of which industries could potentially offset the loss of activity in the mining industry. The report listed the trade, education and personal services industries as having relatively strong demands for goods a nd services from other industries but did not take the next step in exp loring the impact of expanding these industries. The report did highlight the mining industry’s high er demand for goods a nd services from the rest of the North Stradbroke Island’s economy comp ared with the tourism in dustry; however, did not acknowledge that tourism goods and services demand was still significant enough to support growth in the local economy. The Synergies report potentially represents a worse case economic impact. This is because no offsetting benefits appear to be modelled and there is no structure change in the North Stradbroke Island accounted for other than the cessation of mining. These economic losses do appear to be significant in the context of North Stradbroke Island however for the South East Queensland region as a whole they are r elatively small. A more thorough assessment of the benefits and cost s of closing the sand mining industry would provide better estimates of expected economic losses, as it would include aspects such as values of native biodiversity and natural amenity. SGS Economics provided a scoping paper into the North Stradbroke Island Economic Development Strategy for the D epartment o f Environment and Resource Management in June 2011. In their review of the Synergies economic consulting report they are confident the economic impacts appear accurate; ho wever, the report st ates the Synergies re port does not adequately consider possible mitigation for some of the economic impacts from the cessation of mining activity, for example, the report lacks analysis of the impacts on households. Such analysis may exam ine the impact if some households remained on the island and consumed goods and services there too. According to SGS Economics they may choose to stay on a number of factors such as: . age—long time workers who reside on the island may be able to and chose to retire on the island . housing commitments—it is understood many mine workers purchased mine housing some years ago and may have mortgages . lifestyle attractions—this may influence whether workers remain, depending on the value they place on this; however given their considerable connection to the island in terms of time it could be assumed that the lifestyle attractions rate highly; and . other employment opportunities either on the island or accessible form the island, which is dependant on finding employment with similar skills or retraining. As a consequence households would continue to consume goods and services and support local industries, reducing the economic cost from cessation of mining activity which Synergies economic consulting reported on.

Conclusion The review of the report by Synergies Economic Consultancy highlights that the impact analysis is potentially a ‘high side’ outcome. This is because Synergies acknowledges a range of offsetting factors was not modelled. Furthermore, SGS Economics considered that other mitigating factors were not taken into account. Setting aside these qualifications the method as described by Synergies appears appropriate. There are several potential industry development opportunities on North Stradbroke Island. Some of these have already been identified in previous studies and analyses. There are additional industry development opportunities in tourism and education and training for offsetting the impact of the phasing out of mining activity on North Stradbroke Island.

37 Draft Situational Analysis—not government policy

These tourism industry development opportunities were not strong enough to offset the impact of phasing out sand mining activity according to a study by Synergies Economic Consulting. This study found the impact of the phase out of mining would be a large fall in production, employment and incomes in North Stradbroke Island. Synergies acknowledges environmental and social benefits were not factored into their model, regarding the economic loss identified by the model potentially overstating the impact of mineral sand mine closures. 5.3 Future industry development and employment While the current industry and employment profile of the island is dominated by the mining and tourism sectors, there will be a period of transition over the next eight years. The move away from mining will significantly change the industry and employment profile of the island, with new opportunities for economic growth and development emerging. It is recognised that future industry development on the island will need to be based on a clear assessment of the types and styles of industry that will be both acceptable to the community, viable for private sector investment and can provide an appropriate level of employment and contribution to the island economy. Not all industry sectors will be appropriate for the island and introducing a new industry to the economy is not likely to be sustained in the long term. See the Economic Transition Strategy and associated Planning for Action documents for further information on future development and employment opportunities.

Note: This strategy has been prepared by the Department of Environment and Resource Management and the Economic Transition Taskforce with assistance from the following consultants—SGS Economics and Planning, Education Island, EC3 Global and the Quandamooka Land Council.

38 Appendix 1 Planning for Sustainability of North Stradbroke Island Draft schedule of infrastructure projects for future consideration by the taskforce

The projects in this infrastructure schedule have been proposed by Redland City Council (RCC) on the basis of research and ongoing consultation as at October 2011 and require further cross-sector consideration. For further information, please see the RCC North Stradbroke Island Economic Transition Taskforce Progress Report, endorsed by Council at the General Meeting on 26 October 2011 .

1. Marine transport infrastructure

1.1 Toondah Harbour

Short term Medium term

Master planning for major redevelopment to address marine- Major commercial redevelopment with private sector related activities, mixed-use development, commercial, involvement tourism, community recreation, bus transit and feny tenninal, dredging and reclamation Relocation of recreational boat ramp to Williams St Welcome/Interpretative signage

1.2 Dunw ich Harbour

Short term Medium term

Improved bus pick-up/set down facilities (Jmlller St) Ticketing office facility for the shared barge ramp (Jmlller St) Safer accommodation of pedestrian movement through car- Lounge/waiting facilities with food/refreshment sales (J=er park (Jmlller St) St) Landscaping, lighting, sectu1ty and signage improvements Major redevelopment (JtUlller St and Cllllllingham St including (J=er St) Sibelco areas) with p11vate sector involvement Consolidate land holdings and tmstee an-angements (JtUlller St and CtUlllingham St including Sibelco areas) Master planning for major redevelopment (JtUlller St and Cllllllingham St including Sibelco areas) to address marine- related activities, mixed-use development, commercial, tom-ism, community recreation, bus transit and feny tenninal, dredging and reclamation Welcome/Interpretative signage

2. Tourism infrastructure

2.1 Point Lookout Headland (Terrangee)

Short term Medium term

Complete Point Lookout Gorge boardwalk and Point Lookout Oval Park interpretative feattu·es Upgrade and Cylinder Beach Park Upgrade

Headland Park Upgrade with trail head amenities World Class whale watching and inte1pretation facility including building & car park constmction high quality nattu·al musemu (with audio/visual inte1pretation facilities)

39 Short term Medium term

Provide access to existing linkages in a Great NSI Complete Great NSI Trail and network to fine grain elements Recreation Trail (Resolve national park and Nature including landscape feattU'es, stories of place, camping and other Conservation Act ban-iers) facilities

2.2 National parks access

Short term Medium term

Establish infrastmctme development plan to prioritise Implement infrastmcture development plan access and amenity infrastmcttu·e (including potential road reconstmction, constmction of link between Fishenuans and Tazi roads)

2.3 Tourist welcome/information facilities

Short term Medium term

Establish Dm1wich Tom-ist Welcome and Info=tion Centre Establish Point Lookout Info=tion kiosk

3. Cultural infrastructure

3.1 Minjerribah Knowledge Centre

Short term Medium term

In partnership with Quandamooka people, govemment and business investors, create a culttu·al centre managed by traditional owners for keeping records, iniages and a1t efacts, a space for presenting intangible knowledge including traditional songs and dances, and a site for sto1ytelling, exhibitions, a library and research

3.2 North Stradbroke Island Museum

Short term Medium term

Assist with the ongoing development of the Musetuu

4. Social infrastructure

Short term Medium term

Point Lookout Hall Precinct - event infrastmcttu·e Improved Island libra1y facilities (possibly in conjm1ction with other (boardwalk, pe1fon11ance platform, play space, infrastmcttu·e) shade) Land use planning, land identification and land Youth facility/Indoor spo1ts centre acquisition for social infrastmcttU'e Community services centre for use by govemment agencies and NGO's for the delive1y of hmuan services Refurbish Amity Point Hall for ETS futtu·e New Dm1wich Cemete1y

40 Short term Medium term

Outdoor entertairunent arena/amphitheatre for significant events with ancilla1y infrastmctme Shark-netting for swimmers at Cylinder Beach

5. Civil infrastructure

Short term Medium term

Streetscape enhancement for Dunwich, Amity and Entrance Statements for Dunwich, Amity and Point Lookout Point Lookout town centres and main tourist routes Expand wastewater reticulation networks Amity foreshore stabilisation program Upgrade car-park at Cylinder Beach Dunwich to Pt Lookout Cycleway Amity to Pt Lookout Cycle Track Dunwich to Amity Cycle Track

41