CHAPTER 9 SUMMARY, CONCLUSIONS AND RECOMMENDATIONS 274
2.2 KEY PLAYERS IN TOURISM POLICY, PLANNING AND MANAGEMENT
2.3.4 Tourism Policy Making Process
The complex nature of the tourism industry as noted by various authors requires that in the tourism policy making process, all stakeholders are involved, as there are many factors that affect the industry (Fennel, 1999; Page, 2005; Hall, 2008;
Goeldner & Ritchie, 2009). On the same point, Coballos-Lascurain (cited in Fennel, 1999) has identified the following critical groups who should be involved in the policy-making process: local communities; the tourism industry; non- governmental organisations; financial institutions; consumers; and national tourism councils. Similarly, Hall & Page (2006) concur in stating that, while tourism policy is, whatever government choose to do or not to do with respect to tourism, a number of stakeholders influence and perceive public policies in various significant and different ways. Some of these ways include: pressure groups such as tourism industry associations; conservation groups; community groups; community leaders and significant individuals, such as local government councillors; members of bureaucratic bodies such as employees within tourism commissions or regional development agencies; and others such as academics and consultants, involved in the tourism process.
When policies are being developed, one needs to understand the nature of institutions and organization involved in shaping policy, as policy-making is filtered through a range of different institutions which help shape policy outcomes, (Page, 2003). Authors such as Hall (2000) note the importance of interest groups in tourism policy and planning process and their influence on the planning process.
Various authors (Sinha, 2005; Hall, 2008; Fennel, 1999), in their summary of the policy making process, note that the tourism policy cannot be viewed in isolation as many factors such as political factors, which determine the direction of the policy, influence the policy and these are constantly changing.
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Tourism policy-making process is inherently a political activity (Page, 2003).
Several writers (Hall & Jenkins, 1995; Turner, 1997; Page 2003) have suggested that, public policy, strictly resides as a government function, where political intentions and implications of decisions thereof are critical. Page (2003) further suggests that effective policy making requires an understanding of the nature of the institutions involved, as they help shape the outcomes of the policy. The tourism policy making process depicting all the critical stages, as outlined by Page (2003) is shown in Figure 2.1. The tourism policy formulation process as indicated in Figure 2.1 shows that the tourism policy formulation process is very intricate and needs a steadfast pedantic process that must be understood and applied by tourism policy makers in KwaZulu-Natal to ensure that the province has tourism policies that can stand a test of time. Figure 2.1 also indicates the significance of involving all the role players when determining tourism policy.
FIGURE 2.1: THE TOURISM POLICY FORMULATION PROCESS
[Source: Page (2003)]
The tourism policy may generally be divided into two types, namely prescriptive models which seek to demonstrate how policy making should occur relative to pre-established standards, and descriptive models documenting the way in which the policy process actually occurs (Hall & Page, 2006).
Policy Makers
Problem or issue identified
Policy formulation
Policy Implementa- tion
Policy Makers Monitoring Evaluation Consultation
Problem/issue superseded Stakeholders in
Tourism -Residents
-Tourism business interests
-Interest/Lobby groups
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According to Hall et al (1997:5) public policy is first and foremost a political activity. Public policy is influenced by the economic, social and cultural characteristics of society as well as by the formal structures of government and other features of a political system. Policy-making involves the economic, physical, social and political environments in a process of action and reaction over time (Barret & Fudge cited in Hall & Jenkins, 1995). Policy is therefore seen as ideologies, the distribution of power, institutional frameworks, and of decision- making processes (Hall & Jenkins, 1995) [Refer to Figure 2.2].
FIGURE 2.2: ELEMENTS IN THE TOURISM POLICY MAKING PROCESS
Source: Hall & Page (2006)
Given the interaction of numerous forces in the policy-making process, for example, individuals, agencies, laws, perceptions, ideas, choices, processes and the distribution of power, it is not surprising to find that there is little agreement in public policy studies as to what public policy is, how to identify it, and how to
Policy Environment Power Arrangements
juuGyyto
II
Power Arrangements Values
Institutional arrangements
Policy arena Interest groups
Institutional leadership
Institutional arrangements
Values
Institutions Significant individuals
Specific policy issues
Demands, Decisions &
Outputs
Outcomes
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clarify it (Hall & Jenkins, 1995). What was also shown in Figure 2.2 is a plethora of elements that are involved in the tourism policy process and the interrelationship that exist among them.
Hall & Page (2006) further state that the majority of policy and decision making in the tourism sector are more prescriptive models of policy-making which demonstrates how tourism policy and decision-making should occur relative to pre-established standards as indicated in Figure 2.2. (Goeldner & Ritchie, 2009) signify the need for analysis of the structure and composition of tourism policy prior to the actual development of the policy.
Under different circumstances, Goeldner & Ritchie, (2009: 426) have acknowledged the notion that no single model can define the content of tourism destination policy. Goeldner & Ritchie (2009) have therefore suggest a general framework for the structure and composition of the tourism policy in Figure 2.3, which must be considered for a generic tourism policy formulation process.
FIGURE 2.3: STRUCTURE OF THE TOURISM POLICY
Source: Goeldner & Ritchie (2009: 246) Tourism Vision Tourism Philosophy
Tourism Objectives and Constraints
Supply Development Strategies
Demand Development Strategies Macro management
Organisational Structure
Operational/Tactical Supply Development Policies/Programs
Operational/Tactical Demand
Development Policies/Programs
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This formulation must be adapted in terms of peculiar individual situations as dictated by size and complexity of the tourism industry as illustrated in Figure 2.3.
The model presented above depicts a generic structure of the tourism policy that might be adapted for KwaZulu-Natal as a tourism destination.
In contrast to policy formulation provided by Page (2003), Goeldner & Ritchie (2009) conceptualise (see Table 2.2) the process as containing four distinct stages of phases: Definitional; Analytical; Operational and Implementation phase.
TABLE 2.2: TOURISM POLICY STRATEGY FORMULATION AND IMPLIMENTATION PROCESS
DEFINITIONAL PHASE
ANALYTICAL PHASE
OPERATIONAL PHASE
IMPLEMENTATION PHASE
Definition of tourism destination system
Internal Analysis -Review of existing policies and
programmes - Resource audit - Strategic Impact Analysis
Identification of strategic
conclusions
Implementation of strategy for destination development, promotion, and stewardship
Explication of a tourism
philosophy
External Analysis Macro level
analysis of current and future demand and behaviours Review of competitive and supportive tourism development and promotion policies
Implications of conclusions for supply and demand development
Allocation of responsibilities for recommendation implementation Crafting of a
destination Vision
Policy /Programme recommendations
Identification of sources of funding to support competitive initiatives and stewardship programs Objectives and
constraints
Specification of timing for recommendations
implementation Monitoring and
evaluation of the results Source: Goeldner & Ritchie (2009:406)
In concurrence Goeldner & Ritchie (2009) have argued that the basic principles considered when developing a tourism policy may follow the four phases shown in Table 2.2, where tourism policy may be needed for all levels and for all types of
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political jurisdictions. In addition, Goeldner & Ritchie (2009) further suggest that competitiveness and sustainability must be the primary goal of policy and effective pursuit of these goals requires different skills and capabilities. Most of these processes are needed in an effort to stabilise policy formulation and execution in KwaZulu-Natal.