Definition: A Terms of Reference (TOR) is a formal document that defines the scope, content, and requirements of an Environmental Impact Statement (EIS). It sets out exactly what a project proponent must assess and address in their EIS, ensuring that all relevant environmental, social, and economic issues are systematically examined before a project can be approved.
What is the Purpose of a TOR?
The TOR acts as the blueprint for the EIS. Without it, proponents would have no clear guidance on what their environmental assessment must cover, and decision-makers would have no consistent basis for evaluating competing projects.
From a planning perspective, the TOR serves three critical functions:
- It defines the issues — specifying the environmental, social, cultural, and economic matters that must be investigated
- It sets the standard — establishing the depth of analysis, methodologies, and data requirements expected
- It creates accountability — providing a benchmark against which the completed EIS can be assessed for adequacy
Who Prepares the TOR?
In Queensland, the Coordinator-General is responsible for preparing and releasing the Terms of Reference for a coordinated project. However, the process is not done in isolation — it involves a period of public and stakeholder consultation on a draft TOR before the final version is issued.
This means that community members, local governments, state agencies, and industry groups all have the opportunity to influence what the EIS must address — making the TOR one of the most important early-stage opportunities for public participation in the approvals process.
The TOR Process in Queensland
The development of a TOR in Queensland typically follows these steps:
- Project declared a coordinated project — The Coordinator-General declares the project, triggering the EIS process.
- Draft TOR prepared — The Coordinator-General prepares a draft TOR, often informed by the proponent’s Initial Advice Statement (IAS), which outlines the project and its likely impacts.
- Public consultation on the Draft TOR — The draft TOR is made publicly available, usually for around 20 business days. Anyone can lodge a submission identifying issues they believe should be included.
- Final TOR released — Taking submissions into account, the Coordinator-General releases the final TOR. This is a legally binding document that the proponent must follow in preparing their EIS.
- EIS preparation begins — The proponent uses the final TOR as the governing framework for their entire environmental assessment.
What Does a TOR Typically Require?
While every TOR is tailored to the specific project and its context, most TORs for major energy infrastructure projects will require assessment of:
- Project description and alternatives — including consideration of alternative routes, technologies, or design options
- Ecology and biodiversity — threatened species, habitat values, vegetation communities, and fauna movement
- Water resources — impacts on groundwater, surface water, floodplains, and water quality
- Cultural heritage — engagement with Traditional Owners and assessment of Indigenous and non-Indigenous heritage sites
- Noise and vibration — construction and operational impacts on nearby sensitive receptors
- Social impact — effects on communities, livelihoods, and regional services
- Land use and tenure — impacts on agricultural land, pastoral leases, and existing land users
- Rehabilitation and decommissioning — how the site will be restored at the end of the project’s life
- Stakeholder and community engagement — evidence of meaningful consultation throughout the EIS process
Real-World Example: CopperString 2032
For the CopperString 2032 Project, the TOR process played a pivotal role in shaping one of Australia’s largest transmission infrastructure assessments:
- July–August 2019 — Draft Terms of Reference released for public consultation
- September 2019 — Final Terms of Reference released by the Coordinator-General
The TOR set the framework for an EIS that ultimately ran to thousands of pages across numerous technical reports and appendices — covering everything from raptor collision risk along the transmission corridor to impacts on cattle station operations across seven local government areas in Queensland.
TOR vs. Scoping Document
In other Australian jurisdictions and internationally, the TOR may be referred to by different names:
- Scoping document or scoping guidelines (used in some other states and internationally)
- Director-General’s Requirements (used in New South Wales)
- Environmental Scoping Document (used in some federal processes)
Regardless of the name, the function is the same — to define what the environmental assessment must cover before work begins.
Why the TOR Matters for Energy Projects
For energy infrastructure projects — particularly large-scale transmission lines, renewable energy zones, and generation facilities — the TOR is a critical strategic document. Getting the scope right at the TOR stage can:
- Reduce approval delays by ensuring the EIS addresses all key issues upfront
- Improve community trust by demonstrating that public concerns have been heard and incorporated
- Lower project risk by identifying potential environmental constraints early, before significant capital is committed
- Streamline assessment by providing clarity to both the proponent and regulators on what is required
For developers, investors, and planners working on Australian energy projects, engaging actively during the draft TOR consultation period is one of the most cost-effective interventions available in the entire approvals process.
Key Takeaway
The Terms of Reference is the foundation of any EIS process. It determines what gets assessed, how thoroughly, and to what standard. For anyone involved in energy project planning — whether as a developer, community member, or government agency — understanding the TOR and engaging during its consultation period is essential to shaping better project outcomes.
Published on energyplanning.com.au | Energy Planning Glossary
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