Issued by: Ministry of Tourism, Heritage, and the Arts (MTHA)
Presented to: House of Assembly, St. John’s — 20 June 2025
Classification: Public Policy Document
Series: National Policy Series of the Republic of Newfoundland

Table of Contents

1. Preface
2. Strategic Framework
3. Economic Analysis
4. Governance and Institutional Structure
5. Infrastructure Policy
6. Regional Development Strategy
7. Indigenous Partnership Framework
8. Cultural Industries Policy
9. Environmental Stewardship
10. International Relations and Trade
11. Workforce Development
12. Fiscal Structure and Budget
13. Legislative Agenda
14. Performance Metrics and Accountability
15. Vision 2035

Preface

This White Paper establishes the policy framework governing tourism, cultural industries, and heritage preservation in the Republic of Newfoundland for the period 2025–2035. It supersedes the 2018 Tourism Development Strategy and incorporates recommendations from the 2024 Parliamentary Review of Cultural Policy.

The document reflects consultations with regional governments, Indigenous nations, industry associations, environmental organizations, and 4,200 public submissions received during the 2024 engagement period.

The Government presents this White Paper to the House of Assembly for debate and invites further public comment before enabling legislation is introduced in the autumn session.

1 · Strategic Framework

1.1 Policy Objectives (2025–2035)

The Government’s tourism and cultural policy pursues four primary objectives:

1. Sustainable Growth — Double international arrivals while preserving the character that makes Newfoundland worth visiting.
2. Regional Equity — Ensure tourism benefits are distributed proportionally across all regions, with particular emphasis on rural and remote communities.
3. Cultural Integrity — Protect and promote authentic Newfoundland culture without commodification or distortion.
4. Economic Resilience — Reduce dependence on extractive industries by developing tourism as a stable, renewable economic sector.

1.2 Guiding Principles

All policy and regulatory decisions under this framework shall be guided by:

1. Authenticity — Tourism development must reflect genuine Newfoundland life and heritage, not manufactured experience.
2. Stewardship — Development shall not exceed environmental or social carrying capacity.
3. Accessibility — The Republic shall be accessible to travellers of all abilities, and tourism employment shall be available to all citizens.
4. Reciprocity — Tourism should enrich both visitor and host community.
5. Sovereignty — Indigenous communities shall exercise full control over tourism on their lands and in their cultures.

1.3 Relationship to Other Policy

This White Paper operates in conjunction with:

• White Paper on Energy, Mining, and Environment (2024)
• White Paper on Transport and Infrastructure (2023)
• Indigenous Rights and Partnership Act (2021)
• Environmental Protection Act (2019, as amended)
• Broadcasting Corporation of Newfoundland Charter (2020)

2 · Economic Analysis

2.1 Current State (2024)

2.2 Sectoral Breakdown

2.3 Recovery from 2020 Downturn

The Travel Renewal Fund (2021–2023) allocated ₦ 340 million NFD to sector recovery:

• ₦ 180 million — Direct operator support grants
• ₦ 85 million — Infrastructure restoration (harbours, trails, heritage sites)
• ₦ 45 million — Marketing and demand generation
• ₦ 30 million — Workforce retention programs

By 2023, arrivals had recovered to 94% of 2019 levels; by 2024, they exceeded pre-pandemic figures by 24%.

2.4 Projections (2025–2035)

3 · Governance and Institutional Structure

3.1 Ministry of Tourism, Heritage, and the Arts (MTHA)

The MTHA holds primary responsibility for tourism policy, heritage preservation, and cultural industries. Its mandate includes:

• Policy development and regulatory oversight
• Licensing of tourism operators and guides
• Heritage site designation and management
• Cultural grant programs
• International tourism promotion

3.2 National Tourism Council (NTC)

The NTC is the coordinating body for tourism policy implementation, comprising:

• Deputy Minister of Tourism (Chair)
• Representatives from each Regional Tourism Authority
• Nunatsiavut Government delegate
• Innu Nation delegate
• Mi’kmaq representative (rotating between Qalipu and Miawpukek)
• Hospitality Newfoundland President
• Environmental Advisory Council representative
• Memorial University (CSTHS) academic representative

The NTC meets quarterly and reports annually to the House of Assembly.

3.3 Regional Tourism Authorities

Four Regional Tourism Authorities (RTAs) implement policy at the regional level:

• Avalon Tourism Authority
• Central Newfoundland Tourism Authority
• Western Newfoundland Tourism Authority
• Labrador Tourism Authority

RTAs are responsible for regional planning, operator coordination, local marketing, and visitor services within their jurisdictions.

3.4 Broadcasting Corporation of Newfoundland (BCN)

Under its Charter, BCN serves as the Republic’s cultural ambassador, with specific responsibilities for:

• Documentary production showcasing Newfoundland culture and landscapes
• International content distribution and streaming partnerships
• In-flight programming for Air Newfoundland
• Northern Lights Film Festival sponsorship

BCN content currently reaches 40 million viewers annually across 28 countries.

4 · Infrastructure Policy

4.1 Air Transport

The Government maintains four international-capable airports under the National Airports Authority:

4.1.1 Air Newfoundland — National Carrier Policy

Air Newfoundland operates under a public-service mandate established by the Civil Aviation Act (1952, as amended). Key policy provisions:

• Universal Service Obligation — No community with scheduled service may be more than one connection from St. John’s.
• Ownership Structure — 60% National Transportation Holding Corporation (NTHC); 40% domestic shareholders via St. John’s Exchange.
• Route Development — Priority given to routes serving tourism growth objectives and regional connectivity.
• Fleet Modernization — Ongoing investment in fuel-efficient aircraft suitable for both trans-Atlantic and short-field operations.

4.2 Maritime Infrastructure

The Government’s maritime policy prioritizes small-vessel and heritage tourism over mass-cruise traffic.

• Vessel Size Limit — Cruise ships exceeding 500 passenger capacity are prohibited from Republic waters (Maritime Traffic Act, 2023).
• Shore Power Mandate — All designated tourism ports must provide shore power to reduce harbour congestion and noise.
• Priority Ports — Placentia, Twillingate, Battle Harbour, and L’Anse au Clair designated for tourism infrastructure investment.

4.3 Road Network

The Trans-Newfoundland Highway (905 km) is maintained year-round by the Ministry of Transport and Infrastructure. Scenic routes (Irish Loop, Viking Trail, Discovery Trail) receive enhanced maintenance and signage under tourism-specific allocations.

4.4 Digital Infrastructure

Universal fibre coverage was completed in 2024 under the Labrador Sub-Sea Link project. Policy implications:

• All licensed tourism operators must offer guest internet access
• Remote communities enabled for film/television production
• Real-time booking systems available to community-based operators

5 · Regional Development Strategy

5.1 Regional Equity Targets

The Government has established targets for proportional distribution of tourism employment and revenue:

Note: Labrador’s target exceeds population share due to high-value expedition and Indigenous tourism opportunities.

5.2 Regional Brand Identities

Each RTA operates under a coordinated brand framework:

• Avalon Peninsula — “Historic Gateway”
• Central Newfoundland — “The Heartlands”
• Western Newfoundland — “Highlands & Coast”
• Labrador — “Frontier of the North”

5.3 Rural and Remote Community Support

Communities under 1,000 population receive priority access to:

• Coastal Co-Op Tourism Fund (micro-grants ≤ ₦ 50,000 NFD)
• Outport Entrepreneur Initiative (business development support)
• Heritage Building Restoration Program
• Community Guide Training subsidies

6 · Indigenous Partnership Framework

6.1 Legal Basis

Indigenous tourism policy operates under the Indigenous Rights and Partnership Act (2021), which establishes:

• Indigenous sovereignty over tourism on Indigenous lands
• Consent requirements for any tourism development affecting Indigenous territories
• Revenue-sharing provisions for tourism on Crown lands within traditional territories
• Co-management frameworks for heritage sites with Indigenous significance

6.2 Partnership Agreements

The Government maintains formal tourism partnership agreements with:

• Nunatsiavut Government — Comprehensive agreement covering Labrador Inuit lands and the Torngat Mountains corridor
• Innu Nation — Framework agreement for Labrador interior tourism development
• Qalipu First Nation — Cultural tourism partnership for western Newfoundland
• Miawpukek First Nation — Heritage interpretation agreement for south coast

6.3 Indigenous Tourism Fund

Annual allocation: ₦ 25 million NFD

6.4 Visitor Protocols

The Government, in partnership with Indigenous nations, has established visitor protocols for Indigenous territories:

• Prior permission required for entry to certain communities and sacred sites
• Photography and recording restrictions enforced by community guidelines
• All guiding on Indigenous lands must be conducted by Indigenous-certified operators or with Indigenous co-guides
• Revenue from tourism within Indigenous territories remains in Indigenous communities

7 · Cultural Industries Policy

7.1 Heritage Designation

The Republic maintains 47 designated heritage sites and 12 national museums under the Heritage Preservation Act (2017). Designation criteria include:

• Historical significance to Newfoundland’s development
• Architectural or archaeological importance
• Cultural value to communities or Indigenous nations
• Potential for public interpretation and visitation

7.2 Film and Television

The Republic offers a 35% tax credit on eligible Newfoundland expenditures for film and television production. Additional incentives include:

• 10% bonus for productions set primarily outside St. John’s
• 5% bonus for productions employing Newfoundland writers or directors
• Expedited permitting for heritage site and Crown land filming

BCN Studios Complex provides co-production facilities and equipment rental at subsidized rates for domestic productions.

7.3 Music and Performing Arts

The National Festival Grant Program allocates ₦ 18 million NFD annually to support over 140 community festivals and cultural events. Eligibility requires:

• Minimum 60% Newfoundland content (performers, artists, or subject matter)
• Free or affordable public access
• Accessibility provisions for persons with disabilities
• Demonstrated community benefit

7.4 Crafts and Visual Arts

The Newfoundland Craft Certification program protects authentic Newfoundland crafts from imitation imports. Certified items include:

• Hand-knit woolens and traditional textiles
• Indigenous crafts (administered by respective Indigenous governments)
• Pottery and ceramics using Newfoundland materials
• Woodworking and boatbuilding crafts

Only certified items may be marketed as “Made in Newfoundland” or bear the Republic’s craft seal.

8 · Environmental Stewardship

8.1 Carrying Capacity

The Government has commissioned carrying-capacity assessments for all major tourism sites. Where visitation exceeds sustainable levels, management interventions include:

• Timed-entry permits (e.g., Skerwink Trail, Witless Bay boat tours)
• Seasonal restrictions during breeding or calving periods
• Trail hardening and infrastructure upgrades to reduce erosion
• Dispersal programs directing visitors to alternative sites

8.2 Wildlife Protection

Tourism operators conducting wildlife viewing must hold Wildlife Interaction Permits issued by the Ministry of Environment. Permit conditions include:

• Minimum approach distances for marine mammals and seabird colonies
• Vessel speed limits in designated wildlife corridors
• Prohibition on feeding, touching, or attracting wildlife
• Mandatory guide training in wildlife biology and disturbance minimization

8.3 Protected Areas

Tourism within national parks and ecological reserves is governed by the Protected Areas Act (2018). Commercial operators must obtain activity-specific permits and demonstrate:

• Leave-no-trace operational practices
• Waste management and removal plans
• Emergency response capabilities
• Liability insurance meeting Government minimums

8.4 Cruise Vessel Regulations

The Maritime Traffic Act (2023) establishes:

• Maximum vessel capacity of 500 passengers in Republic waters
• Mandatory pilotage in designated heritage harbours
• Shore-power connection requirements at all tourism ports
• Waste discharge prohibition within 50 nautical miles of shore

9 · International Relations and Trade

9.1 Target Markets

9.2 Marketing Budget (2025)

Total allocation: ₦ 85 million NFD

• 60% — International marketing
• 40% — Domestic marketing (encouraging Newfoundlanders to explore their own country)

9.3 International Alliances

North Atlantic Arc — Bilateral tourism agreements with Iceland, Ireland, Scotland, and Norway creating shared heritage routes, ferry links, and joint marketing campaigns.

North Atlantic Aviation Compact (NAAC) — Air Newfoundland participates in codeshare and scheduling coordination with Aer Lingus, Icelandair, and Porter Airlines.

9.4 Visa and Entry Policy

Citizens of 94 countries may visit the Republic without a visa for stays up to 90 days. The Republic participates in the Electronic Travel Authorization (eTA) system for streamlined processing.

10 · Workforce Development

10.1 Training Infrastructure

• Centre for Sustainable Tourism and Heritage Studies (CSTHS) — Memorial University research and graduate programs
• College of the North Atlantic — Hospitality, culinary, and guiding programs at campuses across the Republic
• Tourism Apprenticeship Program (TAP) — Subsidized work placements for students entering the sector

10.2 Certification Requirements

The following certifications are mandatory for licensed tourism operators:

10.3 Labour Standards

Tourism sector employers must comply with the Tourism Fair Labour Code (2022), which establishes:

• Living wage minimums exceeding general minimum wage by 15%
• Seasonal employment protections including recall rights and benefit continuity
• Mandatory tip transparency and pooling regulations
• Housing assistance requirements for employers in remote locations

11 · Fiscal Structure and Budget

11.1 Tourism Budget (2025)

Total allocation: ₦ 680 million NFD

11.2 Revenue Sources

Tourism-specific revenues supporting the sector include:

• Accommodation Levy — 4% on all paid accommodations, collected by operators
• Cruise Passenger Fee — ₦ 45 NFD per passenger, payable by vessel operators
• National Parks Entry Fees — Variable by site, 100% retained by NPA
• Operator Licensing Fees — Annual fees based on operator size and activity type

11.3 Regional Allocation Formula

Tourism infrastructure and development funding is allocated to regions based on:

• 40% — Current visitor volume
• 30% — Growth potential assessment
• 20% — Community need index
• 10% — Indigenous partnership projects

12 · Legislative Agenda

12.1 Proposed Legislation (2025–2026)

12.2 Regulatory Changes

The following regulatory amendments will be implemented by ministerial order:

• Updated Wildlife Interaction Permit conditions (effective July 2025)
• Revised National Parks fee schedule (effective January 2026)
• New Craft Certification standards (effective April 2026)
• Enhanced accessibility requirements for licensed accommodations (phased implementation 2025–2028)

13 · Performance Metrics and Accountability

13.1 Key Performance Indicators

13.2 Reporting Requirements

• Quarterly — Arrival statistics and revenue data published by MTHA
• Annual — State of Tourism Report presented to House of Assembly
• Biennial — Independent audit of tourism expenditures and program effectiveness
• Five-Year — Comprehensive policy review with public consultation

13.3 Accountability Mechanisms

The National Tourism Council reports to the Standing Committee on Economic Development. The Auditor General conducts periodic reviews of tourism program spending and effectiveness.

14 · Vision 2035

By 2035, the Republic of Newfoundland will be:

• A globally recognized destination known for authenticity, hospitality, and natural beauty
• A model of equitable regional development where tourism benefits every community
• A leader in Indigenous tourism partnerships built on sovereignty and mutual benefit
• A creative hub exporting film, music, and art rooted in genuine heritage
• A nation where tourism strengthens rather than diminishes the culture it shares

The Government invites all Members of the House, and all citizens of the Republic, to engage in the debate on this White Paper. Written submissions may be directed to the Ministry of Tourism, Heritage, and the Arts until 30 September 2025.

Document Information

Title: White Paper on Tourism, Culture, and National Identity
Edition: 2025
Issuing Authority: Ministry of Tourism, Heritage, and the Arts (MTHA)
Presented: House of Assembly, St. John’s — 20 June 2025
Series: National Policy Series
Public Comment Period: 21 June – 30 September 2025
Contact: whitepaper@mtha.gov.nf