gestão interdisciplinar de tourismo prof[1]. geraldo.set

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Management of Tourism in the Context of Regional Strategic PlanningStudy of Latin-American cases.

Geraldo Luciano Toledo; Jess lvarez Valds; lvaro Castroman PolleroArea: 07 GEA Environmental Management

Abstract. This paperproposes that the more successful management of regional tourism must

include the coordinated initiative of all interested public, private and non-governmental (NGO)organizations. This coordinated involvement should be managed to position on the same levelthe objectives of the various fields of knowledge represented. Interdisciplinary approaches maythen be effectively researched, carried out, controlled and assessed in the scope of strategicplanning (SP) for regional tourism. The methodology adopted examines case studies of strategicplanning by three countries: Costa Rica, Mexico and Brazil. Final results disclose how theinitiatives and objectives of SP are coordinated and how their involvement in the strategicplanning of tourism contributes to sustainable regional development.

Keywords: regional management, strategic planning, tourism.

I- INTRODUCTION the Spanish Institute for Tourism (IET, 1999) defines tourist activity as alarge scale sociologic phenomenon that may be studied and analyzed under variousperspectives, integrating diverse disciplines or fields of knowledge, such as Economics,Political Sciences, Geography, Ecology, Anthropology and Management. The definitions ofthe concepts of tourism may thereby be achieved following a methodology specific to eachof these disciplines, thus, establishing a multidisciplinary approach. In this context anydefinition tends to disclose a biased view of the tourist issue. However, some characteristicsof tourist activity point towards its complexity, its interdisciplinary and its systemic nature.Such characteristics refer to the following factors perceived in the tourist activities:intangibility, perishable features, simultaneity of the binomial production-consumption andfloating demand.

Yzigi (2001) observes two intrinsic characteristics of tourism, the first one corresponds to whathe defines as the art of pleasing and the second relates to the assumption that the touristactivity may self-destroy itself by its own performance. Such properties of the tourism serve asan alert to the complexity and the care that must be dedicated to the planning and developmentof the tourist system.For the purpose of analyzing Strategic Planning, the tourist system is normally divided into threesub systems: the environment (E), the Work (W) as an indicator of the social ambient, and theEconomy (E), thus making up the triad EWE. The high interrelation of the elements of this triad,together with the complexity and explosion of the tourist sector in Latin America, lead to thefact that entrepreneurs, government, NGOs and the academia do not assume a sufficientlyquestioning and analytic attitude towards the tourist phenomenon. Some extol an apologetic

attitude and others adopt a more critical attitude, arguing that the tourism industry makeseverything it touches artificial.In view of this divergent reality found in Latin-American society the present work proposes toanalyze situations indicative of the interrelations involving tourism and highlight its regionalimpacts on the EWE triad.More specifically the following objectives are pursued:

Present practical evidences of how, starting from consistent SP, the tourist phenomenonmay contribute as element of articulation of the regional Sustainable Development (SD); Suggest some practical activities of regional planning of the EWE triad for theachievement of SD.

From the methodological point of view, the case studies impart an exploratory descriptiveconnotation to this study, as described by Yin (2001).

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An effort was made to specifically study the SP of three tourist regions: Mexico, Costa Rica andthe Brazilian Northeast. For data collection were used interviews consisting of semi-structuredand not disguised questions that were than adjusted according to the specificities of the touristclusters under study.Based upon this bibliography and the opinion of the responsible technicians of the regionalNGOs it was assessed how the idea of sustainable development is treated, improved and

articulated as from the tourist activity, in the ambit of the Latin-American geographical regions.Special care was given to the theoretical aspect of this study in the use of concepts found in thereports of the global mega-conferences such as CMMAD (1987) and Eco 92.

II- Sustainable development in the institutional framework. The World Commission forEnvironment and Development (CMMAD. 1987) submitted the Report Our Common Future,disseminating globally the concept of sustainable development utilized aiming to put togetherapparently discrepant concepts: social development as a point of equilibrium between Ecologyand Economy. The purpose was to integrate the objectives of the triad EWE on the same level,by use of precise and correlated indicators.

Now-a-days, one of the errors normally pointed out with regard to planning projects is the factthat the economy utilizes economic indicators; the social area makes use of social parametersand the professionals related to environmental issues adopt physical-chemical-biological words.The objectives presented according to the perspective of each one of the professionals, asituation varying between them, renders the establishment of universal quantitative indicatorsproblematic, in addition to the difficulty that parameters for comparison are not available. TheSD rests upon this articulation of objectives in the ambit of the institutional aspect.An approximate representation of SD can be drawn by a function , which optimizes andcontrols the common objectives of the triad EWE in one same level or dimension:

SD = of common objectives (Environment, Work, Economy)

Certainly the equation is not so trivial. As Sen (1996) analyses, for a SD of a country or region,

the three components of the triad are influenced by multiple factors, mostly by the capacity ofjoint and coordinated action between government and private initiative, based participative citizenship. Such coordination is headed by processes related to education,technological innovation and building up of qualified human resources which is equivalent to theimplementation of a continuous and self-sustainable process of intensification of the learningcapacity.II.1- Sustainable development and tourism. According to Paloucci (2000), in tourism, theconcept of sustainability must envisage four key challenges: 1 - a better understanding of howtourists rate and use natural environments; 2- the increase of the impacts of the dependence ofcommunities on tourism; 3 the identification of the social and environmental impacts oftourism and 4 the implementation of systems to administer such impacts,

Toledo et al (2001) interpret the reason for the involvement of tourism with sustainabledevelopment, principally because in Latin-America, among other aspects tourism requires aseries of transformations of the original site, generating, in most cases an irrevocable impact onthe environment and on the hosting society. Such impacts led Krippendorf (1977) to viewtourists as devourers of landscapes, and Yzigi (2001) to call them the new vandals, becauseof their misconduct and the lack of awareness on the imbalances that their consumer behaviorcause upon the environment and the hosting society. Sachs (1993) stresses the usefulness andcapacity of tourism to place the social in the center of development, that is to say, to restate thesocial purpose of development.As regional economic multiplier, Embratur (2000) as well as SECTUR (2000) are adamantwhen pointing at the number of the economic sub-sectors that are enhanced by tourism. Thenumber of these sub-sectors surpasses fifty.

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During his stay the tourist will utilize and circulate within a network of flows coordinated by

these sectors which shall be integrated, managed and oriented towards the differentiatedsatisfaction of the clients. The proposed model permits to deal better with the value to be added

to the brand of the tourist cluster, enabled by the synergism of each one of the economicalsectors which contribute to the tourist cycle, to the hosting community and consequently to SD.III- Case StudiesTourist development and planning policies assessing the EWE triad in the Latin-Americanregions were analyzed in this study. Figures indicate the activity in its real dimension, as shownin Table 1.Table 1: Tourist destinations in the world (perspective for the year 2001)Tourism Global Latin

America

Mexico Costa Rica Brazil

1- Invoicing**(% do GNP)

4500(4.0%)

145(3.5%)

71(8.2%)

3.2(7.9%)

58.2(7.5%)

2- taxes**(% of total) 792.4(4.2%) (--)(--) (--)(--) (--)(--) (--)(--)3- jobs generated *(% of total )

207(9.0%)

12.7(8.5%)

2.7(8.3%)

0.235(16%)

5.382(7.5%)

4- arrival of tourists *(% of total )

656.9(--)

40(6.1%)

20(3.1%)

2.3(0.4%)

5.1(0.8%)

5- influx of exchangevalues**(% of total)

1063(12.8 %)

30(12.3%)

19.5(14%)

1.4(18%)

8.0(10%)

6 Investments**(% of total)

656(9%)

22(7.8%)

16.1(12%)

0.580(20%)

8.5(6.2%)

* Million **billion of U$S

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Figure 2: Optimization of EWE axis a touristregion

Source Authors:

Axissustain

ablecompetitiveness

Axis

StrategicPlannin

gofCluster

Sectorn

Sector2Ex: Restoration Services

Sector 3Ex: infrastructure services

Sector1Ex: Lodging

When increasing the diameter throughthe efficiency of SP also increases

competitiveness,

As it is a circle increases the

Investments. The circle when

Expanding maximizes the areas

Of EWE, HE, I and C and S of TT

S.doC

H.E.

I.eC

S.doC

H.E.

I.eC

S.doC

H.E.

I.eC

S.doC

H.E.

I.eC


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Source: World Travel and Tourism Council WTTC (2000)III.1 Case of Mexico. The country has the National Policy and Strategy for Tourist SustainableDevelopment plan which is the outcome of the action of the Secretariat for Tourism (SECTUR,2000) and of the effort of various institutions of the public, social and academic sectors to defineguidelines, policies and a specific strategy as a basis to transform the structure of the sectorsdevelopment and enable the transition towards sustainability.

To achieve these results SECTUR (2000) adopted a participative model of planning whichpermitted the social actors of tourism to provide significant theoretical as well as practicalcontributions.

SECTUR (2000) set up its goals according to the Rio 92 Declaration and the consideration of theAgenda 21 for Voyages and Tourism of WTO. After the assessment of SP undertaken bySECTUR in the time period of 1995- 2000 the National Development Plan 2000- 2003 wasdeveloped. It begins with an introduction, background and then presents the stages to befollowed as may be seen in Figure 3.

III.2- Case of Costa Rica. The political guidelines of Costa Rica are structured as a touristcluster that encompasses the entire national space. For Segura, Inman (1998), Costa Rica is nowat the stage of development and having the experience of various planning, implementation,measurements and evaluations of former plans that permit a positive feed-back for the newplans. In its practical experience this region has managed to overcome situations of risk for its

survival.The department of Natural Resources of the Costa Rica Institute for Tourism (ICT, 2000) hasprepared the program Certification of Tourist Sustainability (CST), as a strategy to transformthe concept of sustainability into something tangible, practical and necessary in the competitivetourist context of the cluster. The purpose is to improve the utilization of the natural and socio-cultural historical resources. Active participation of the local communities in the networks oftourist information of the public and private sector is fostered.With tourism, the less endowed provinces of Costa Rica such as Puntarenas and Guanacastohave brought into being a drive towards socio-economical development. The ICT (2000)highlights that the inclusion of social and ecological elements in the ST benefits the more than700 thousand people that directly or indirectly depend upon it. This represents 20% of the

countrys overall population.

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Diagnstico

Elaborao

Definiodas

Polticasde

Ao

Delinear os

Programas

Estratgicos

Execuo

Estratgica

Figura 3:Modelo do Processo Mexicano de Planejamento Participativo (2000-2005)

Fonte: SECTUR (2000)

Fase 2.Poltica Nacional pao Desenvolvimento TursticoSustentvel

-Princpios Bases pa rao Desenvolvimento Turstico

Sustentvel

- Objetivo Geral

-Objetivos Especficos-Diretrizes de Gesto para

a Secretaria de Turismo

-Diretrizes Gerais para o

Desenvolvimento Turstico

-Polticas de Desen volvimen

Turstico Sustentvel

Fase 3.Estra tgia Naciona lpara o DesenvolvimentoTurstico Sustentvel:

1-Edu cao, C apa citao e

Cultura

2-Certificao da Sustent abilida de3-Mensurao, Inv estigao e Ava liao

4-Participao Social5-Recuper ao e P reser vao

6-Promoo de Simp lificao, Financiamento e EstmulosFiscais aos investimentos tursticos Sustentvel

Fase 4.-Listado de Participantes

-GrupoInterdisciplinariode Turismo Sustentvel

- Grupo de Enfoque

-Equipo Internode Planejamento

-Grupos de Avaliao

da Sustentabilidade

Fase 1.Diagnstico daSuste ntabilid adedoSetor Turstico

MexicanoDiagnstico

Elaborao

Definio das

Polticas de

Ao

Delinear os

Programas

Estratgicos

Execuo

Estratgica

Figura 3: Modelo do Processo Mexicano de Planejamento Participativo (2000-2005)

Fonte: SECTUR (2000)

Fase 2. Poltica Nacional parao Desenvolvimento TursticoSustentvel

-Princpios Bases parao Desenvolvimento Turstico

Sustentvel

- Objetivo Geral

-Objetivos Especficos-Diretrizes de Gesto para

a Secretaria de Turismo-Diretrizes Gerais para o

Desenvolvimento Tur stico

-Polticas de Desenvolvimento

Turstico Sustentvel

Fase 3. Estratgia Nacionalpara o DesenvolvimentoTurstico Sustentvel:

1-Educao, Capacitao e

Cultura

2-Certificao da Sustentabilidade3-Mensurao, Investigao e Avaliao

4-Participao Social5-Recuperao e Preservao

6-Promoo de Simplificao, Financiamento e EstmulosFiscais aos investimentos tursticos Sustentvel

Fase 4.-Listado de Participantes

-Grupo Interdisciplinariode Turismo Sustentvel

- Grupo de Enfoque

-Equipo Internode Planejamento

-Grupos de Avaliao

da Sustentabilidade

Fase 1. Diagnstico daSustentabilidade doSetor Turstico

Mexicano


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III.3- Case of the Brazilian Northeast. The Federal Government of Brazil and the Inter-American Bank for Development (IBD) are endorsing implementation of the Project Initiativefor the Northeast, directed towards the promotion of a new culture for the development of theregion, starting with the building of tourist clusters. Thus is born the PRODETUR/NE, aprogram which aggregates approximately 450 projects, mobilizing resources of some US$800million, of which US$ 400 million are financed by the Banco do Nordeste (Northeastern

Bank) with funds transferred by the (IBD). It is expected that the following targets will be met:Table 2: Partial results of the year 1999 carried out by PRODETURDescription (% US$ of the totalspent)

Unit. Global Realized %.

Direct jobs unit. 1,687.000 1,119,215 66.3Indirect jobs unit. 2,183,000 1,448,277 66.3Sanitation, drinking water (26.2%) Thousa

ndinhabit.

809.1 647.0 80.0

Improvement of street network (17.7%)

Km 647.4 642.1 99.2

Historical heritage (7.3%) m2 287,792,7 287,492,7 99.9Environment (3.1 %) Ha 47,679 44,024,4 92.308 airports (25%) Unit. 08 07 87.5Institutional Development (3.7 %) project 172.0 74.0 43.0

Source: The Pro-Northeast Initiative (1999)

In the projects conception the private sector is requested to mobilize synergism starting fromthe comparative local advantages, to lever the regional competitive dynamics According to theWorld Tourism Organization (WTO, 2000) each US$ 7 thousand spent in the country representthe maintenance of a job. While the automotive industry requires R$170 thousand to generate ajob, in tourism merely R$ 40 thousand make possible a direct job in a hotel; R$ 10 thousand

employ one person in a restaurant and R$50 provide for the raw material and the employment ofa craftsman.Interpretation of data on the three regions. In the analysis of the practical evidences,following the method of theoretical propositions (Yin, 2001) developed in the referentialaspect for the cases of this paper, it is perceived that at the current stage of implementation ofthe SD theories, there is a combination between art and science. This is due to the absence ofmethodologies or common indicators for domains such as Ecology, Sociology, Anthropologyand Economics.In Mexico and Costa Rica the awareness of the tourist SP that has begun to incorporate theenvironmental, cultural dimension and identity of the site in the decision taking of its planningprocesses and setting of the objective is a good example for other sectors. Further noteworthy is

the fact that both have achieved a return in the economic-tourist growth over the medium andlong term.Another aspect in favor of the optimization of the triad EWE, practiced by the three regions intheir SP, consists in permitting to identify the problems, actors and methods to achieve thecommon targets, be they public-private, national or international.In addition to the well known amount of equipment, services, infrastructure, image and touristsneeded to carry out tourism, technicians and scholars of these tourist regions disclose, in theirSP, the need to articulate the activities of the triad EWE for development, as can be seen inTable 1Table 1: activities of the EWE triad mentioned within the tourist plans.Activity/Country Mexico Costa Rica Brazil

Tourist image Differentiate Differentiate Poorly differen.

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d dTourist image related with the identity andregional culture

Highlydifferentiated

PoorlyDifferentiate

d


Tourist image related to the regionalenvironment

HighlyDifferentiate

d


PoorlyDifferentiated

Qualified and participative planning High High LowSynergism of Public-Private Initiative Mean High MeanInter-sectorial focus, at the long term High High MeanPromote and facilitate sustainableinvestments

Defined Defined Poorly defined

Focus on global competitiveness High High HighInformation and qualification ofsustainability to tourists, travel agents,hotels, restaurants among others.Ecological label

High High Low

Articulated and inter-sectorial managementsystem High High LowScientific treatment, specialized literature,tourism schools

High Mean Low

Qualification of human resources High High InitialSustainability Indicators High Mean LowFocus on sustainable consumption Mean High LowLimits of maximum tourist capacity Defined Defined Not definedMeasurement, investigation controlassessment inside planning

Defined Defined Poorly defined

Indicators and ecological management High

o

High Low

Ecological certification Mean High LowEcological renewal and preservation Initial High LowFeedback of planning High High Low

Next some comments are made on the surveyed countries, according to their stage in the lifespan of tourism.Mxico (Stage of Sustainability) With reference to tourist planning of this country, thefollowing aspects must be stressed:1. planning and management of tourism in a sustainable way, endeavoring to optimize the areas

of the triad EWE, taking into account the objectives and some common indicators;

2. inclusion in the plans of the philosophy of the CMMAD (1987) reports and of the Eco92;3. great capacity to articulate tourism with the remaining sectors;4. use of development methods that point towards a more equalized distribution of its economic

results;5. inclusion of regional identity and culture to increase competitiveness of tourism at this stage

of globalized tourism.Costa Rica. (Stage of Development) Costa Ricas original proposal exhibits the followingcharacteristics:1. sustainable ecological tourism which utilizes in a competitive manner its natural tourist

resources ( practical feasibility of the binomial competitiveness-sustainability); nurtured bythe innovation in environmental management;

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2. takes into account the methods and indicators with objectives common to the triad EWE, suchas certification of tourist sustainability demonstrated by ecological labels;

3. evinces a high level of commitment and planning on the long term of the public power insynergism with the private initiative and other integrants of the cluster.

Results of Costa Rica are an excellent example to show that the major responsibility for thedegradation of tourism is due to an inexistent or inefficient planning/implementation, with the

real and qualified participation of the hosting societies.Northeast of Brazil (Stage of Initiation) In view of the socio-economical situation of theBrazilian Northeast, the PRODETUR/NE has gained momentum in view of the followingelements:1. be a development program by means of projects;2. determine the situation-issue, involved actors, objectives and management mode

articulate the SD;3. facilitate financing and the national and international funding agencies by means of an

articulation of the political power with the private initiative.The larger the inclusion of activities such as HS, IC and SCS (objective of EWE at the samelevel, by inter-sectorial planning) the greater will be the achieved stage of development. Four

approaches must be taken into account:1. even with planning, tourism may be an agent of degradation. However, in the cases of a welldeveloped planning, a successful solution can be achieved. Because the tourist activity mustbe permanently submitted to a process of measurement, control and evaluation which enables,whenever degradation is detected, an immediate intervention, by means of corrective actions,permitting the building up of sustainability of the tourist activity

2. . Figures are crushing with regard to the real significance of tourism in the national economyin the studied cases.

The data is presented:capacity to proffer direct job generation (approximately from 8% to 10%);generate exchange values (approximately 8% to 15% of the national balance of trade);

contribute to the NGP (between some 5% to some 9% of the NGP), in a real articulation oftourism with numberless economic and social sectors of the regions affected (in Brazil 52sectors were identified).

3- The real capacity of carrying out SD, due to the high technical qualification of those incharge of planning. They possess a systemic focus enabling them to articulate the triad EWEwith the variables IC, SCS and HS and that is difficult to find in other sectors;4- The spatial processes resulting from a theoretical planning based upon experiences, the philosophy and terminology of the concepts found in reports such as that ofCMMAD (1987) and of the ECO 92 are explicitly mentioned in the plans, although theirprimary objective is the binomial competitiveness and sustainability.

IV- Final Considerations. Results indicatethat, for a betterrelationship between the touristsector and the spatial dynamics of the region efficient SPs must be set up and a participativemanagement that optimizes the interrelations regarding the triad EWE. This is a process thatmust be conceived starting from a positive assertion of the regional identity and culture.A scientific study must be undertaken of an interdisciplinary and participative character, startingwith local culture and identity and whose results confirm the economic, socio-cultural andenvironmental feasibility of carrying out this activity in a given region. Simultaneously a moreequitable distribution of the benefits of tourism and its developments must be devised to enhancethe quality of life of the local population, especially of those more wanting. In this way, tourismbegins to assume a responsible position, in which the sector can articulate itself and provide forthe regional sustainable development.V- References

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CMMAD. Nosso Futuro Comum. Fundao Getulio Vargas, RJ, 1991.EMBRATUR. Turismo, estruturao e legislao. EMBRATUR, RJ, 2000.IET. Instituto Espaol de Turismo. Empleo y Turismo. IET, Madri, 1999.Krippendorf J. Les Devorateurs de Paysages. Heures, Lausanne, 1977.OMT. Compendio de Estadsticas del Turismo. OMT, Madrid, 2000Paloucci, L. Competitividade sustentvel em turismo. ECA-USP, Dissertao de Mestrado, SP,

2000.Sachs, I. Estratgias de transio para o Sculo XXI . Desenvolvimento e meio ambiente. StudioNobel, So Paulo, 1993SECTUR. Secretaria de Turismo de Mxico. La Poltica y Estrategia Nacional para el DesarrolloTurstico Sustentable. SECTUR, Mxico, 2000.Segura, G.; Inman C. Turismo en Costa Rica. CLACDS, Costa Rica, 1998.Sen, A. Desenvolvimento como Liberdade. Cia das Letras, So Paulo, 1996The Pro-Northeast Initiative. Relatrio Tcnico. Bahiatur, Bahia, 1999.Toledo et al. Planificacin estratgica de empresas tursticas. Propuesta de un modelo. Estudiosy Perspectivas. Buenos Aires, 2001WTTC. Tourism Satellite Accounting Research. WTTC, Canad, 2000.

Yzigi, E. A alma do lugar. Contexto, SP, 2001.Yin, R. Estudo de Caso. Planejamento e Mtodos. Bookman, POA, 2001.

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