Kosciuszko NP

Kosciuszko, your park - your plan

Discussion Paper 4

Sustainable Use – Ski Resorts Kosciuszko National Park 2004 – 2024

Kosciuszko National Park Plan of Management Review NSW National Parks & Wildlife Service 1. INTRODUCTION

Ski Resorts and their Location within Kosciuszko National Park

1. The purpose of a national park is to identify, protect and conserve areas containing outstanding or representative ecosystems, natural or cultural features or landscapes or phenomena that provide opportunities for public appreciation and inspiration and sustainable visitor use and enjoyment (National Parks and Wildlife Act, 1974 as amended) (NPW Act).

2. The ski resorts in Kosciuszko National Park (KNP) have been used for intensive recreational activity over a long period. The four resort areas of Thredbo, Perisher Range (Perisher/Smiggin Holes, Guthega and Blue Cow, Bullocks Flat and Link Management Units), Charlotte Pass and Selwyn Snowfields provide access to winter recreation opportunities, such as skiing, that do not exist elsewhere in NSW. They contribute significantly to state and regional economies.

3. The current Plan of Management for KNP (PoM) recognises winter snow sports as a “major recreational activity enjoyed by winter visitors to the Park” (NPWS 2001). The ski resort areas (defined as J Management Units in the current PoM) are “managed to provide opportunities for alpine skiing and other alpine recreation and appropriate summer use” (NPWS 2001). 4. The ski resorts are located in the sensitive alpine, sub alpine and montane environments of KNP. The significant environmental values of these environments are associated with their altitude, geomorphology, vegetation communities, fauna, and water catchment qualities. The government recently confirmed these significant values and the need for their ongoing protection when it decided that the ski resorts should be retained as part of the national park. This decision followed an inquiry into the effectiveness of the National Parks and Wildlife Service’s policies and practices in carrying out its responsibilities for urban communities and road maintenance within national parks (Walker Inquiry).

5. The government’s decision means that KNP and the ski resorts will be managed in accordance with the principles of management for national parks according to the NPW Act as follows:

(a) the conservation of biodiversity, the maintenance of ecosystem function, the protection of geological and geomorphological features and natural phenomena and the maintenance of natural landscapes,

(d) the promotion of public appreciation and understanding of the national park’s natural and cultural values,

(e) provision for sustainable visitor use and enjoyment that is compatible with the conservation of the national park’s natural and cultural values,

(f) provision for the sustainable use (including adaptive reuse) of any buildings or structures or modified natural areas having regard to the conservation of the national park’s natural and cultural values,

(g) provision for appropriate research and monitoring. 6. The new PoM for KNP must be prepared according to these principles and will provide the overarching framework for the management of the Park and the ski resorts.

7. The challenge for future management is to recognise the importance of, and provide for, recreational opportunities in the resort areas while, at the same time meeting the principles set out above to protect the natural and cultural values of the Park. The debate is centered around whether the principles of management for national parks outlined on page 1 should be applied directly to the resort areas or whether the resorts should be managed to give greater emphasis on sustainable visitor use and considered part of a much larger area ie KNP which is managed according to all of the national park principles.

Existing Plan of Management

8. The existing PoM sets out management objectives and prescriptions for cross country and alpine skiing within KNP as a whole, and then for each individual resort and associated area. The primary management objectives of the areas set aside for the management of alpine skiing in the existing PoM are:

• to encourage the provision of facilities and services in alpine skiing management units for alpine skiing; • to ensure that resort area planning and services are of a high standard appropriate to w inter visitors and to a park of Kosciuszko's environmental quality and international stature; • to foster the development of a range of alpine skiing opportunities;

IIIssssssuuueee PPaaapppeeerrr 444::: SSuuussstttaaaiiinnnaaabbbllleee UUssseee ––– SSkkkiii RReeesssooorrrtttsss PPrrreeepppaaarrreeeddd fffooorrr ttthhheee KKNNPP PPoooMM CCooommmmuuunnniiitttyyy FFFooorrruuumm MMeeeeeetttiiinnnggg 111777///111888 OOccctttooobbbeeerrr,,, 222000000222 2 • to ensure that facilities are provided for non-skiing visitors w ithin the ski resorts; • to permit accommodation for essential servicing staff and visitors to prescribed levels; • to ensure that ski resorts function w ell; • to ensure visitor safety in the operation of services and facilities; • to monitor visitor grow th patterns and visitor responses to ski resorts and services; • to ensure that cross-country skiing facilities are provided w ithin and adjacent to resorts; • to ensure satisfactory design standards for all new structures and works; • to ensure community services are provided to meet visitor grow th and statutory standards; • to protect important features including landscape and environmentally sensitive areas; • to maintain liaison w ith local shires, Department of Planning, Environment Protection Authority, local tourist associations and other community groups and appropriate authorities concerning ski resort development policy and practice and w inter tourist grow th indicators; • to have regard to the effects of development on areas surrounding the Par k.

9. Amendments to the PoM were made in 1994 and 1999 responding to the growth and the environmental condition of the resort areas within the Park. Since 1982 the main amendments made to the PoM reflect the following:

• Increase in the PoM accommodation limits in the resort areas of Thredbo and Perisher, Smiggin Holes and Guthega. • Consolidation of ski resort boundaries and closure on new ski resort areas in the Park. • Permission for snowmaking additives for use in snowmaking systems subject to no adverse environmental impacts. • Creation of a new management unit – Link Management unit to link the resorts of Perisher, Smiggins, Blue Cow and Guthega. • Change in NPWS policy to allow for a range of accommodation including apartments. • Change in policy on recreational facilities to permit non-skiing recreational facilities in resorts and major facilities to be developed off park. • Provision of better facilities and services for cross country skiing. • Water conservation and resource management policies to protect streams and threatened species.

Recent Changes to Planning and Development Control

10. At the time the government confirmed that the ski resorts would be retained within KNP in 2001, it decided that a new planning regime would apply to the ski resorts and that PlanningNSW would be responsible for detailed planning, development and building control. It also decided that the RTA would manage the major roads in the park.

11. The new planning regime involves the introduction of an interim State Environmental Planning Policy 73 (SEPP), followed by a Regional Environmental Plan (REP) to apply to the ski resort areas. PlanningNSW are responsible for the preparation of both of these documents. The enabling legislation for the interim SEPP and REP, the Environmental Planning and Assessment Act Amendment (Ski Resort Areas) Act was passed on in December 2001 and SEPP 73 came into force in September 2002. The new legislation applies to “ski resort areas” defined as areas of land within the Kosciuszko National Park, broadly defined by the management unit boundaries of the existing PoM.

12. The new legislation requires that the Minister for the Environment be consulted in the development of the REP (now known as the Alpine Resorts Plan or ARP). In doing so the Minister is required to take into account whether the ARP promotes the objects of the NPW Act and is consistent with the PoM.

Relationship between the Plan of Management and the Alpine Resorts Plan

13. The PoM applies to all of KNP and provides the context and overarching principles for the management of the ski resorts. NPWS has an ongoing role to ensure the conservation and protection of the land in which the ski resorts are located. At the same time, the new PoM must contain realistic management prescriptions for the development of recreational opportunities in resort areas. It is also the lessor of the land and provider of municipal services in some areas.

14. The new plan of management for KNP must take into consideration a range of matters, which are outlined in the NPW Act. Specifically for the ski resorts the new PoM will, amongst other things: • identify natural and cultural values of KNP; • outline strategies for the protection of the natural and cultural values;

15. In simple terms the PoM will outline how the resorts will be managed and what can occur to ensure consistency with the principles of NPW Act. The ARP will follow through with the detail of the future form of the ski resorts, associated performance standards and controls to guide development permitted by the PoM. The ARP is expected to be consistent with the NPW Act and the new PoM. The two plans should together provide a consistent and transparent planning and policy framework within which the resorts can develop and function.

PllanniingNSW’’s Drrafftt Allpiine Resorrtts Pllan IIssues Paperr

16. PlanningNSW’s Draft Alpine Resorts Plan Issues Paper provides good background information for this discussion paper. The Planning NSW Draft Alpine Resorts Plan Issues Paper identifies a number of strategic issues for the resorts: Appropriate Use, Capacity, Character, Access and Interfaces. While these strategic issues are common to both the Alpine Resorts Plan and the PoM, the Draft Alpine Resorts Plan Issues Paper requires the PoM to provide the broad framework and parameters in which the strategic issues are to be resolved (pg 10).

17. The Draft Alpine Resorts Plan Issues Paper has been distributed to the Community Forum and members are requested to read this document and Chapter 7 of the existing PoM in preparation for the next meeting.

PoM Reviiew IIssues Paperr 4-- Resorrtts

18. This discussion paper addresses some of the strategic issues that the Draft Alpine Resorts Plan Issues Paper requires the PoM to address. It does not reiterate material presented in the PlanningNSW Paper nor does it attempt to address all the issues associated with resorts that the PoM is likely to address. Time does not permit the Forum to resolve all the issues relevant to the resorts at the meeting.

19. This paper draws on the existing section of the PoM as the basis for discussion, provides a broad overview of the significance of the resort areas and focuses on the issues that are considered most critical for the Community Forum to consider at the meeting. The paper requests the Community Forum to consider the current objectives of the PoM. The current objectives have been used to develop some draft principles for the future management of the resorts. Following a discussion on the principles and objectives of the new POM the paper then focuses on some of the critical issues that require resolution namely:

• Reconciling the protection of natural and cultural values with Increased visitation and market trends;

• Defining sustainable visitor use in the resort areas – appropriate types of activities; and

• The future of Charlotte Pass Village. IIIssssssuuueee PPaaapppeeerrr 444::: SSuuussstttaaaiiinnnaaabbbllleee UUssseee ––– SSkkkiii RReeesssooorrrtttsss PPrrreeepppaaarrreeeddd fffooorrr ttthhheee KKNNPP PPoooMM CCooommmmuuunnniiitttyyy FFFooorrruuumm MMeeeeeetttiiinnnggg 111777///111888 OOccctttooobbbeeerrr,,, 222000000222 6 2. OVERVIEW OF THE SOCIAL AND ECONOMIC SIGNIFICANCE OF THE RESORTS

1. The resorts provide a range of seasonal opportunities for visitors, including: skiing, snowboarding and snowplay, walking and hiking through the alpine landscape, sporting competitions, musical and cultural festivals, flyfishing, indoor sporting activities, restaurants and leisure retail. Some of the resorts, mainly Thredbo, provide for summer recreation opportunities as well. In addition to the facilities and services within the resort areas they also provide gateways to more remote experiences in backcountry areas of the Park.

Economic Significance 2. The four resort areas within the Park are managed through a range of leases each having various tenures and conditions. Through revenue generated from lease rental, capital investment, visitor expenditure and NPWS entry fees, the NSW ski industry contributes significantly to the state economy. A 1994 study by KPMG for the Australian Ski Areas Association estimated that the NSW alpine region contributed to $334.5 million to the state economy (winter $308.1 million, summer $26.4 million). This represented a total of 8112 jobs.

3. Approximately $4 million per annum is generated from Park Entry Fees to the Park, of which the majority is generated from winter visitation to the resorts. This revenue is used to offset the cost of operations and visitor facility management within Kosciuszko National Park and other parks in NSW.

4. A new study of the economic impact of the resorts and KNP, based on 2001/02 visitor expenditure, is underway as part of the PoM review and the preparation of the ARP.

Facilities and Services in Resorts Areas

5.. Perriisherr Range Resorrtts The Perisher Range contains the largest ski resort in Australia with 1250 hectares of skiable terrain at elevations between 1600m at the base of Blue Cow to 2054 m at the top of Mt Perisher. The Perisher Range resorts include the resort areas of Perisher Valley, Smiggin Holes, Guthega, and Blue Cow, and Link Management Unit which in 1995 were amalgamated to form the Perisher Blue Ski Resort. These ski slopes are served by 52 lifts, comprising 12 chairlifts and 40 surface lifts (T-bar and J-bars), with capacity to transport 47,648 skiers uphill per hour. The Perisher Range resorts have cross country skiing trails and provide access to backcountry skiing. Access to the resorts area is provided by Kosciuszko Road and the Skitube rack railway from Bullocks Flat. IIIssssssuuueee PPaaapppeeerrr 444::: SSuuussstttaaaiiinnnaaabbbllleee UUssseee ––– SSkkkiii RReeesssooorrrtttsss PPrrreeepppaaarrreeeddd fffooorrr ttthhheee KKNNPP PPoooMM CCooommmmuuunnniiitttyyy FFFooorrruuumm MMeeeeeetttiiinnnggg 111777///111888 OOccctttooobbbeeerrr,,, 222000000222 8 6. The resorts are managed according to a series of separate lease and license agreements with a range of business operators. Perisher Blue hold a range of leases for ski lift infrastructure, accommodation, retail space, carparking, and also hold the Blue Cow and Skitube head lease. The leases have a range of tenures to 2027.

7. Bullllocks Fllatt Is on the Alpine Way and includes overnight and day parking, and the skitube terminal which provides access to Perisher Valley and Blue Cow Mountain.

8. Charrllotttte Pass Charlotte Pass is located 8 km beyond Perisher Valley. It houses the Charlotte Pass Chalet which was constructed in 1939 and is the oldest surviving accommodation building in the Kosciuszko alpine resort areas. The ski slopes of Charlotte Pass are serviced by 4 ski lifts and cater to more than 1000 skiers at a time. During winter the resort area is snowbound and rubber tyre access is not permitted. An oversnow transport service is provided during the ski season.

9. The head lease expires on 30 June 2015 and is for the conduct of a year round tourist and holiday resort and ancillary village and purposes reasonably incidental thereto. It confers certain specified development rights, which include the establishment of lodges and lifting facilities as well as some summer facilities. The Charlotte Pass Village head lease is the only lease that is subject to review as part of the review of the PoM.

10.. Thrredbo Thredbo is situated 37 km from Jindabyne on the southern slopes of the Thredbo Valley. Its main natural features are the Thredbo River and the Crackenback Range. Development of Thredbo Village started in the late 1950s and provides year-round activities including alpine skiing served by 13 lifts, bushwalking, golf, tennis and swimming. The skiable terrain is at elevations between 1365m and 2037m.

11. The head lease expires in 2007 with a further automatic 50-year option. The lease is for the conduct of an alpine and summer tourist resort and purposes reasonably incidental thereto and covers an area of 959 hectares.

12.. Sellwyn Snowffiiellds Selwyn Snowfields is in the northern section of Kosciuszko National Park. It has 11 lifts with capacity to transport 9,500 skiers uphill per hour to more than 45 hectares of skiable area. The resort is popular

13. For further information on facilities and services offered by the resorts please refer to pages 9 -11 of the Planning NSW Alpine Resorts Plan Issues Paper.

Accommodation 14. The ski resorts provide a range of accommodation in the form of hotels, commercial lodges, ski club lodges, and apartments. Accommodation levels are managed by prescribed limits set out in the PoM. The current PoM limits the number of beds in KNP to 11,899.

15. Charlotte Pass is the only resort currently at bed capacity. Selwyn Snowfields and Blue Cow are day resorts only and have staff accommodation only. Thredbo has a bed limit of 4810 and has approximately 500 beds yet to be constructed. The Perisher Range Resorts (Perisher, Smiggins and Guthega) have a combined allocation of 4872 beds of which 3552 are actually constructed. Therefore a total of 1800 beds are yet to be constructed in the resorts

16. Accommodation in the ski resorts is managed according to the NPWS Snowfield Accommodation Policy. The existing PoM requires that all future major development of tourist overnight facilities particularly of the hotel/motel/lodge type will be encouraged outside the Park.

Visitation Patterns 17. Estimated winter visitation to the NSW ski fields increased exponentially until the late 1980s but has since stabilised. The total

Total NSW Alpine Resorts Skier Days 1981-2001

140 0

120 0

100 0

80 0

Tota l NSW Alpine Resorts:

60 0 Skier Days ('000)

40 0

20 0 IIIssssssuuueee PPaaapppeeerrr 444::: SSuuussstttaaaiiinnnaaabbbllleee UUssseee ––– SSkkkiii RReeesssooorrrtttsss Prepared for the KNP PoM Community Forum Meeting 17/18 October, 2002 Prreeppaarree0dd ffoorr tthhee KNP PooM Coommuunniittyy FFoorruum Meeeettiinngg 1177//1188 Occttoobbeerr,, 22000022 10

1 2 3 4 5 6 7 8 9 0 1 2 3 4 5 6 7 8 9 0 1 8 8 8 8 8 8 8 8 8 9 9 9 9 9 9 9 9 9 9 0 0 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 0 0 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 2 2 Year number of skier days for the NSW Ski Resorts over the 21-year period to 2001 is plotted below. Lower visitation generally is reflective of lower snow pack such as in 1982 which was only 92 cm. Skier visitation has grown substantially over the last 10 years compared to the first 11 years. The average visitation for the 11 years from 1981 to 1991 was 786,821. In the 10 years from 1992 to 2001 the average rose to 1,035,600 accounting for 59% of total skiers days in Australia. 18. The alpine resorts cater to a well-developed market, with annual fluctuations in visitation reflecting seasonal variations in snow cover. Visitation to the resorts continues to be a predominantly winter season event. Almost 70% of visitors to the resorts come in winter. Alpine skiing and snowboarding are the main recreational activities of the resorts. Cross-country skiing continues to be an important niche activity, accounting for 10–15% of snow sport activity. As with other forms of recreation there is a degree of crossover between the snow sports. General family snow play is also an important form of alpine winter recreation, as are the social activities of visitors. 19. In the Thredbo resort in particular, non-winter recreational activities have developed in recent years with a focus on bushwalking, fishing, mountain bike riding and horse riding. These activities have been supplemented by cultural events such as the jazz, blues and world music festivals and sporting events such as National Running Week and the Mountain Bike Classic. Charlotte Pass Village and Selwyn Snowfields have significantly reduced operations outside the prime winter season.

The Nature of the Industry and Market Trends

20. The “ski” industry of the 1960’s to 1980’s has changed, as with most industries. Initially, skiing as a sport was for the very fit because of the absence of lifting or primitive lifting and no or limited grooming. The 1980’s saw a rise in ski resort development around the world, including Australia. The focus was on increasing and modernising lifting, grooming and snowmaking and new ski areas opened as the popularity of skiing rose. In Australia this included Blue Cow Mountain and Selwyn Snowfields as day ski resorts. In the development of this paper the NSW Ski resort Operators Group have provided information and their thoughts about market trends and the nature of their industry:

21. “Over the last decade, resorts around the world stabilised in number but obtained greater efficiencies and market share through mergers and acquisitions. Perisher Blue Ski Resort is the leading example in Australia being formed in 1995 through the merger of the adjoining resorts of Perisher-Smiggins and Blue Cow-Guthega.

23. The industry is a global one with similar issues, challenges and opportunities no matter the country in which it operates. In Australia, the alpine resorts compete each year against warm and cold destinations domestically and internationally. Vacationers exercise choice between locations such as the alpine resorts in Australia and New Zealand, Queensland and other warm Pacific Ocean localities as well as choosing whether or not to ski locally or, instead, to holiday in overseas alpine resorts in North America or Europe.

24. The ski industry suggest that they are now part of the hospitality and leisure sector. Providing facilities for a diverse range of leisure pursuits, not just alpine skiing and snowboarding, is required. The facilities need to cater for passive as well as active visitors, and exist year round.

25. Snow sports infrastructure is now designed to meet market demands such as high speed, high capacity lifting, extensive snowmaking, increased winter grooming of the snowpack (that requires increased summer slope grooming), constructed and specialised features such as terrain parks, half pipes and rail parks.

26. With market driven skifield infrastructure in place, visitors realise their ‘slope side” time faster with vastly improved experiential value. What to do with the time available for the visitor once the “slope side” experience is realised became the challenge for the industry. Market demand was for base or village areas to be built or revitalised so that visitors had a range of other activities to experience. The industry became one that was increasingly focused on year round mountain destination resorts.

27. Technological change in the provision of ski resort services has greatly influenced behavioural patterns of guests. Previously, when lift speeds were slow, lift lines were long, slope grooming was less than perfect and skis were harder to ski, people would need to ski all day to get value for money; and then be exhausted. Today’s high speed lifts, increased snow reliability, high quality snow grooming and modern ski technology ensures that many skiers and snowboarders are tired soon after lunch, content with the quality of their day spent on the slopes. Due to these improvements resorts are experiencing significant demand for greater services including, massage and day spa facilities, indoor sports facilities and cultural activities such as art galleries, cinema and theatre, as well as shopping, to complement their time on the slopes before guests make the choice of which bar or restaurant to visit in the evening, and possibly go night skiing.

28. Developing year round mountain destination resorts internationally, places pressure on Australian resorts to meet the trend. If not, visitation is likely to fall as visitors choose those resorts that provide the experiences they demand. When visitors go to remote mountain areas they will not look for the fundamental experiences and activities they want in a holiday that are dislocated from the resort itself. Visitors want the activities and facilities within the resort. Transporting to and from a resort to other areas for a facility or activity is increasingly unacceptable by the vast majority of visitors.

Significance of the Natural Environment

1. The resorts are located mainly within the alpine and sub alpine environments, which contain a large number of significant natural and cultural features. The natural features that are found in the resorts are not widespread in Australia or even within KNP. The resorts have been developed in areas with some very important habitats, the significance of which was not fully understood at the time of early development of the resort areas. These features include many species of rare plants, significant vegetation communities adapted for harsh seasonal environments of the alpine and sub alpine areas, landforms resulting from past glacial and associated cold climate processes, threatened species and important rivers and streams. The resorts’ proximity to the other sensitive environments such as the main range area of the park makes the management of the ecological values within and adjacent to the ski resort areas essential.

2.. Vegettattiion Communiittiies The alpine, sub alpine and montane vegetation communities found within the resort areas are of very high conservation significance. Twenty three plant communities are considered nationally significant, three communities are identified as being of state significance and three communities are of regional significance (Ecology Australia 2002). Other significant vegetation features include old growth elements, particularly snow gum populations and veteran stands of Podocarp (Ecology Australia 2002).

3.. Thrreattened Speciies The resorts contain habitat for a range of threatened fauna including Mountain Pygmy Possum and the Broad Toothed Rat. Threatened species, their location and status in the resorts are listed in Table 1. A number of recovery plans

5.. Clliimatte Change Variations in climatic conditions due to global warming are likely to influence the annual average temperature and precipitation in the resorts over the next 30 to 50 years. By 2030 Australia’s annual average temperatures are projected to increase by 0.4ºC to 2.0ºC across the continent. This is likely to impact on snow cover in the resort areas as described on page 16 of Planning NSW’s Issues Paper.

6. It is difficult to accurately predict what the impacts of climate change will be for the resorts. Climate change may include the reduction of snow covered areas, impacts on the distribution of plants and animals and spread of pests and weeds. Further studies are currently underway as part of PoM review process in conjunction with Planning NSW and the Australian Ski Areas Association to predict the likely snow cover in the resorts under various climate change scenarios, together with potential adaptation strategies.

Cultural Significance

7. Lands in which the resorts are located have cultural significance with evidence of aboriginal use of the landscape prior to European contact. The areas are significant for aboriginal people as descendants of the tribes who occupied and visited this area and because of places and pathways of special cultural significance. There is archaeological evidence of early human use and occupation of the mountain area. Some archaeological work and predictive modeling has been completed in the resort areas. The Kosciuszko

8. The areas are also significant for local communities as they provide links to previous use of the high country for grazing, mining, hydro electricity, tourism and recreation. The historical use of the area for alpine skiing is also of cultural significance.

Environmental Management of Ski Resorts

9. NPWS and the resort operators assess the potential impact of proposed activities according to the Environmental Planning and Assessment Act, 1979. Following construction, monitoring of the ongoing impact of their operations on the environment is mostly though water quality monitoring and threatened species research. Some of the resorts are subject to an environmental levy that contributes to research in these areas and to feral animal and weed control. A brief summary of the results of water quality and threatened species monitoring will be available at the meeting.

Recent Planning Initiatives

10. A number of plans and environmental studies associated with the development of the Perisher Range Resorts have been undertaken in recent years. The Perisher Range Master Plan provides a planning framework and direction for future development within the resort areas on the Perisher Range (Perisher, Smiggins, Guthega and Blue Cow). The framework is concerned with seeking a balance between the demands of the resort based recreation and natural resource conservation in KNP. It sets out environmental, functional, social and economic objectives. It also contains ecologically sustainability and environmental performance objectives, guidelines and controls that will apply to the Perisher Range Resorts.

11. An environmental management system is also being developed for the Perisher Range Resorts. This system has been established with key stakeholders to manage and monitor their operations to achieve desired environmental outcomes. It involves NPWS, Perisher Blue, all the commercial and club lodges and hotels. It is the only resort in KNP that has such a system. It provides a common context and set of environmental goals for all lessees and other operators in the resort area. It is a tool to help existing lessees and operators demonstrate a high level of environmental performance, and it defines the mechanisms through which future development and operations will be undertaken. The EMS helps resort operators, NPWS and other stakeholders to deliver on the commitment to ensure all activities and

12. Recent planning initiatives in the Perisher Range Resort may be useful for future planning in other resorts of the Park. A copy of the plan is available to Forum Members if required.

1. The growing populations of the metropolitan centers of the Australian eastern seaboard are expected to put increasing pressure on Kosciuszko National Park. By 2020 the populations of Greater Metropolitan Sydney are anticipated to grow by 15%; the Canberra- Snowy Mountains Corridor by 16%; and the North Coast by 27% (PlanningNSW, 2002). Changes in the demographics of these markets could see a change in recreational patterns by:

• the continued growth in adventure travel and sports, particularly among the younger population; • an increasing demand for holiday experiences which provide an escape from urban life and access wilderness areas: and • the continued trend for shorter holidays, which has been occurring since the early 1990s

2. As presented on page 9 the ski industry also needs to adapt to an ever –changing market, international trends and competition from other resorts and visitor destinations both nationally and internationally. They also require the PoM to provide certainty for future investment and planning.

3. The review of the PoM comes at a time when NPWS, resort operators, local governments and the community need to ensure the ongoing protection of the outstanding natural, cultural features of the Park while allowing the resorts to adapt to market changes and remain competitive.

A Vision

4. A long term vision for the ski resorts and key guiding principles will need to be included in the new PoM. It is suggested that the vision should extend well beyond the life of the new PoM (say 50 years) and include statements about: • the social and economic importance of the resorts • the future ecological conditions and state of the significant natural and cultural values and features; • sustainable visitor use; • environmental accountability; • regional linkages and community involvement.

Draft Guiding Principles

5. NPWS has drafted a set of principles that could guide the future management of the resorts within KNP and the discussion on how to IIIssssssuuueee PPaaapppeeerrr 444::: SSuuussstttaaaiiinnnaaabbbllleee UUssseee ––– SSkkkiii RReeesssooorrrtttsss PPrrreeepppaaarrreeeddd fffooorrr ttthhheee KKNNPP PPoooMM CCooommmmuuunnniiitttyyy FFFooorrruuumm MMeeeeeetttiiinnnggg 111777///111888 OOccctttooobbbeeerrr,,, 222000000222 18 resolve the critical issues. The principles are intended to reflect the current provisions of the existing PoM, requirements of the NPW Act and best practice in sustainable visitor management. They aim to improve environmental performance, create economically viable and socially responsive resorts and enhance visitor services and facilities for all users. They are not presented in any order of priority;

1. Primacy of Protection of Natural and Cultural Values – Maintenance of ecological integrity will be the first principle of planning and management in KNP. Decisions affecting the resort areas will be based on the understanding that the resort areas are part of an internationally recognised ecosystem, cultural landscape and world biosphere reserve. National and State biodiversity strategies require the protection of biological diversity and maintenance of ecological processes and systems.

2. Provision and management of alpine snow sports and sustainable visitor use – Winter snow sports are a major recreational activity enjoyed by winter visitors to KNP. The resort areas will continue to be set aside in the Park to provide and foster opportunities for these activities. Promotion of the public appreciation and understanding of the natural and cultural values of the resort areas and their location within the Park will continue to be one of the primary means of ensuring the ongoing protection of the Park’s ecological and cultural values for future generations. The resorts will foster sustainable visitor opportunities that are compatible with the conservation of the park’s natural and cultural values. In accordance with the Act, only uses that are directly relevant to this purpose will be permitted.

3. Limits on Ecological Footprint -. Resort activities will be contained within existing management boundaries, subject to minor adjustments to improve manageability for both NPWS and lessees. No new ski resorts will be developed, as there is an ecological advantage in concentrating visitor services to existing resort areas and maximising existing infrastructure and skifield capacity. Ecological impacts from the resorts in other areas of the park will be minimised and managed cooperatively between NPWS and the resort operators. Development is to occur on land that has already been disturbed unless a net benefit to the environment can be demonstrated.

4. Improved Cultural Heritage Management -. The rich matrix of values and phases of human uses will be acknowledged, protected and interpreted in ways that are compatible with the area’s values. Conservation, planning and management of the resort areas will provide for the participation of people for whom the place has special

5. Respect for Existing Leases and Economic Significance - Ski resorts are managed under a number of leases, which provide certain rights to the commercial operator for an appropriate return to the State. These leases vary in tenure and conditions and most extend beyond the life of the new PoM. Existing rights should be recognised in the development of the new plan, together with the economic contribution that the resort areas make to state and regional economies. The requirements of the POM should be clear and unambiguous, providing a stable regulatory environment within which future investment decisions can be made.

6. Functional, Accessible High Quality Facilities and Services – Resort area planning and services will be of a high standard comparable to KNP’s environmental quality and international stature. They will be functional and ensure visitor safety in the operation of services and facilities. A range of opportunities can be provided to meet market demand. There must be fair and equitable access to resort facilities and services for the broad community.

7. Ecologically Sustainable Development – It is a basic requirement that the resorts are planned, designed and developed in a manner that is inherently sustainable. Sustainability is defined as “development that uses, conserves and enhances the community’s resources so that ecological resources, on which life depend, are maintained and the total quality of life now and in the future can be increased”. There is a need to adhere to the four principles of ESD i) the precautionary principle ii) intergenerational equity iii) biodiversity conservation iv) improved valuation, pricing and incentive mechanisms. To be sustainable ecological, social and economic values need to be considered. This can be achieved through the use of tools and techniques such as life cycle assessment of capital, operational and environmental costs over a 50 year period and relates them to today’s values. Key ESD outcomes will be energy and water conservation, site disturbance an minimisation, waste minimisation, conservation of biodiversity and development of cost efficiency

8. Short Term Visitor Destinations – Consistent with the National Parks and Wildlife Act, 1974 (as amended) planning for the resorts will be based on short term visitor destinations rather than long term residential areas. Accommodation facilities in the resorts are recognised as a limited opportunity and therefore managed to be available to as many people as possible. Settlement must be considered on a regional basis taking into account adjacent towns

9. Integration of activities in the resort areas and management of conflict at the interface of management units – The resorts are located in areas that provide visitors with access to other areas of the park such as cross country skiing, bushwalking, main range walking etc. The resorts will play an important role in the future in assisting with access to and management of these activities. Conflict may arise at the interface of the resort areas and other areas of the park. This conflict needs to be recognised and actively managed by NPWS, lessees and other relevant stakeholders.

10. Cooperative Management- Involving the lessees, visitors, local councils, tourism organisations and relevant government agencies in resort area planning will help ensure sound decision making and build public understanding and stewardship to protect the Park’s values for the future. There is a need to constructively shape tourism to achieve conservation objectives and this can be done through collaboration and partnership.

11. Integration with Regional Initiatives- Planning for the resorts will take into account regional planning for shires adjacent to the Park. Cumulative effects of facilities, accommodation and infrastructure in resorts on regional communities will be considered and the concept of gateway communities will be encouraged.

12. Environmental Accountability and Stewardship - All stakeholders managing facilities, accommodation and infrastructure should demonstrate appropriate environmental performance standards and report on their ability to meet the standards. The lessees and visitors will be required to contribute towards environmental management of ski resorts.

13. Adaptive Management - Planning and management of resort areas will be based on best available knowledge, supported by a wide range of research, including commitment to integrated scientific monitoring, research on social and economic values, market trends, attitudes and behaviour. The ongoing monitoring and evaluation of resort activities will continue to improve our understanding of the relationship between the impact of activities on natural processes and allow adaptive management principles. Research will be the responsibility of all stakeholders.

5.1 Reconciling the Protection of Natural and Cultural Values with Increased Visitation and Market Trends

IIssue 1. Protecting the Park’s natural and cultural values while providing for sustainable visitor use is a complex and challenging issue and has been the subject of controversy and debate for many years. This issue is found elsewhere in the world where major commercial operations such as ski resorts are located in sensitive mountain environments in national parks. For example, ski resorts operators and national park staff face similar issues over the protection and management of Banff and Jasper National Parks in Canada.

2. Resort carrying capacity represents the maximum level of visitor use and related infrastructure that an area can accommodate. If it is exceeded the environment may deteriorate, visitor satisfaction may diminish and other social, cultural and economic impacts may occur. There are two primary means of determining the capacity of the resorts; a) Quantifiable development controls such as bed numbers, commercial floor space, ski slope capacity, sewerage capacity etc and b) Environmental constraints such as water quality standards, vegetation cover etc.

3. The total number of visitors using the resorts in KNP is measured by gate entry figures, lift ticket sales and accommodation limits in the resorts. Commercial floor space, sewerage, water supply, access and parking capacity and recreation infrastructure capacity can all be quantified. Combined these figures give a rough estimate of how many people are using the resorts. however it tells us little about how well the environment is coping with the number of visitors. The total carrying capacity (infrastructure and environment) of the resorts in KNP has not been calculated to date.

Possiiblle Solluttiions 4. It has been suggested that quantifiable limits on development in the resorts such as bed numbers are of limited use, as they do not reflect total visitor numbers and how well the environment is coping.

5. By retaining quantifiable development controls such as bed numbers and commercial space we are able to measure the relationship between the impact of our activities and the changes to the natural values. At present environmental indicators that can be used to assess how well we are managing the natural values of the Park have not been established. Having both development and

6. By combining our knowledge on the physical infrastructure capacity of the resorts with the natural and cultural environment we can attempt to define the desired environmental condition and level of acceptable impact that will not threaten the values of the area. Taking the appropriate steps now and establishing a sound framework could in the long term help demonstrate that the resorts are both economically and ecologically sustainable.

7. Any framework would be a new requirement not currently prescribed by the existing PoM and could involve: • Policy and planning; • Performance monitoring; • Performance improvement; and • Performance reporting.

8. Policy and planning can be done through the PoM review process and the development of the ARP. Setting out a long term vision and principles together with performance standards in both these documents together with the community and industry is a good start.

9. Performance monitoring is essential to ensure that we demonstrate the economic, environmental and social performance of the resorts. This can be achieved through the establishment of sustainability indicators, together with best practice performance benchmarks for these indicators. It is further evident that appropriately designed integrated systems are required to ensure continuous environmental performance improvement. An environmental management system is one way of achieving this.

10. An environmental management system is recognised as a means by which organisations can demonstrate their commitment and ability to meet environmental criteria. Having a track record in environmental management, having an environmental management system in place and/or having specific environmental management plans for a specific project or site are becoming pre requisites for doing business with the NSW government.

11. A crucial component of achieving sustainability in destinations is performance reporting on progress. For resort lessees, NPWS and other government agencies this will be a new requirement not currently prescribed by the existing PoM.

13. NPWS considers that it is important that the resorts remain competitive, offering high quality visitor services. The aim is to limit environmental risk to the Park’s natural and cultural values while allowing them to be enjoyed. This can be controlled through the retention of quantifiable development ceilings such as bed number and commercial space with a range of environmental performance standards such as energy and water conservation, site disturbance and minimisation, waste minimisation, conservation of biodiversity and development of cost efficiency.

IIssue 1. As a national park Kosciuszko can offer many visitors the opportunity to explore and learn about a unique and natural area. Quality facilities and services that enhance the visitor’s experience are important. There is a need to recognise that facilities in the resorts are different to those provided in other national parks. Some activities such as snow skiing cannot be provided elsewhere. Other facilities such as a golf course, high altitude sports training facility, alpine slide and mountain biking using lift infrastructure to transport riders already occur at Thredbo. It must be recognised that some leases confer development rights for all season recreation opportunities.

2. However the Park cannot be all things to all people. Because protecting ecological integrity of the park is the first priority difficult choices must sometimes be made regarding types of development and use. Sometimes for social, economic and environmental reasons some activities are best provided for in areas outside the Park.

3. The NPW Act provides for recreation in terms of: • the promotion of public appreciation and understanding of the national park’s natural and cultural values,

• provision for sustainable visitor use and enjoyment that is compatible with the conservation of the national park’s natural and cultural values,

• provision for the sustainable use (including adaptive reuse) of any buildings or structures or modified natural areas having regard to the conservation of the national park’s natural and cultural values.

4. The current PoM prohibits the development of broad acre facilities such as sports grounds and golf courses and facilities that require large amounts of water (unless the proponent can demonstrate that water is available and any discharge from the facility can be treated effectively). Generally, activities which cultivate an appreciation of the special values of Kosciuszko and that do not require major environmental modifications are acceptable. Facilities that are a secondary use of an existing facility, are enclosed within a building used for other purposes and only incur minor visual noise, physical and biological impacts are also considered reasonable. In all cases

5. Given the projected growth in visitation to the region and the resorts, the changes in recreation use and patterns, and regional marketing campaigns promoting recreational activities in resorts, it is expected that the need to develop additional recreational facilities and services in the resorts will continue. Suggestions such as golf driving ranges, mountain bike riding on ski slopes and other high adventure sports are already being raised. Considerations about the likely impact of these activities on other areas of the park also need to be considered.

Possiiblle Solluttiions

6. Determining what is appropriate in a resort in a national park is not easy. Establishing a comprehensive list of acceptable uses is problematic. Predicting what may become popular or commercially important in ten years will prove to be inaccurate and of limited use in the new PoM.

7. Therefore one suggestion is to establish a framework that sets out a fair and transparent process for determining the type and level of activities and use that are appropriate in the national park’s resort areas is essential.

8. Criteria that could be used to measure the appropriateness of an activity in the resort areas could include a test against primary criteria of:

• Consistency with the NPW Act and the PoM; • Effects on Cultural and Natural values – what is the potential environmental impact? Does it have consequences outside the resort areas • Education and Awareness – how well it contributes to the visitor’s education and awareness of the Park’s values

9. There may be secondary criteria that could include:

• Park / Alpine Dependency – Does it have to be provided for in the Park can it be provided off Park? • Duplication – does it already exist in the region/park? • Social Effects – will it improve visitor experience, what are the social consequences? • Reversibility – can the activity be reversed? • Benefit to the Park and Region as a whole.

IIssue 1. The four resort areas within the Park are managed through a range of leases each having various tenures and conditions. The only lease that is subject to review within the term of the new PoM will be Charlotte Pass Village.

2. The Charlotte Pass Village Management Unit is located at the headwaters of Spencer’s Creek. The resort within the Management Unit is Charlotte Pass Village and (with the exception of the independent Kosciusko Alpine Club lodge) is operated by Charlotte Pass Village Pty Ltd. The company provides a range of lifts and transport facilities for skiers. The village contains 607 beds.

3. The principal lease is between the Minister and Charlotte Pass Village Pty Ltd (the principal lessee). The lease, which commenced on 20 December 1974, expires on 30 June 2015 and is for the conduct of a year round tourist and holiday resort and ancillary village and purposes reasonably incidental thereto. It confers certain specified development rights, which include the establishment of lodges and lifting facilities as well as the continued operation of the Kosciusko Chalet. Charlotte Pass Village is also located adjacent to the major trail head for walks on to the main range.

4. The village was established in the early days of skiing and is in a sensitive environment. One of the larger and older groups of climax snow gum communities, an important concentration of the rare mountain pygmy possum, unusual geomorphological features and important alpine and subalpine plant communities are just some of the important natural features in the area in which Charlotte Pass Village has been developed. An impoundment proposal for the Spencers Creek Valley (planned as part of the Snowy Mountains Scheme) was withdrawn because of the important conservation value of the valley.

5. The importance of the natural environments within the Charlotte Pass Village Management Unit and the influence of the resort on the surrounding Kosciuszko Management Unit, the current PoM requires that we carefully consider the long-term future of the Village in any review of the plan. It also states that if is the responsibility of the lessees and sub-lessees to demonstrate that they can operate in this sensitive area without diminishing its natural value.

6. The location and proximity to the main range area makes Charlotte Pass one the most unique resort in NSW. It is distinguished form the

References

Ecology Australia, Draft Kosciuszko Ski Resorts Vegetation Assessment (2002-03), 2002

NPWS, Kosciuszko National Park Plan of Management, Consolidated Version 2001.

NSW Resort Operators Group, Email , 4 October 2002

NPWS, Perisher Range Resorts Master Plan, NPWS 2001

PlanningNSW, Draft Alpine Resorts Issue Paper, PlanningNSW 2002