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Structure
14.0 Objectives
14.1 Introduction
14.2 Politics of Tourism
14.3 Tourism as a Political Tool
14.4 Creating Political Images
14.5 Tourism, Public Administration and Bureaucracy
14.6 China and India: A Case Study
14.7 Let Us Sum Up
14.8 Clues to Answers
14.0 OBJECTIVES
After going through this Unit you will be able to:
understand the relationship between political ideologies and tourism,
know about the political use of tourism,
understand how politics influences tourism, and
appreciate the relationship between tourism, public administration and bureaucracy.
14.1 INTRODUCTION
The growth and development of tourism, particularly in the developing countries, is dependent not
only on the economic factors, as the case is often presented, but also on the political forces that
govern these countries. Not only these internal political structures affect tourism but international
politics also has a vital impact on the tourism policies and tourism growth. For example, an advisory
issued by the United States to its citizens not to visit a particular country or a destination, though a
political decision, affects tourism at large. Hence, whatever efforts that country or destination might
have made for tourism promotion go waste in the light of a political decision.
In this Unit, we intend to discuss the political impacts on tourism and of tourism on a nation. Why and
how tourism is used as a political tool for image formation, economic development or determining
international relations is another aspect discussed in the Unit. The Unit also takes into consideration
how political changes affect tourism and the role of bureaucracy vis--vis tourism.
Tourism activity goes beyond picking the correct currency and the best low cost destination. In the
past decade we have seen the use of Human Rights infringements and Democracy issues being closely
linked with tourism. There was a call to boycott tourism to Myanmar because the Military regime has
been holding the democratically elected leader, Aung San Suu Kyi under house arrest. Such boycotts,
it is hoped, will lead the local population to question the legitimacy of the actions of their own
governments. There was outrage in the West over the killings in Tianamen Square in Beijing. In
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relations between countries, like India and Pakistan, tourist visas are denied and the right to visit
multiple destinations controlled. Limited tours and exchanges have reflected the changing political
relations between countries. Tourist flows can also be used as a barometer of the relations between
tourist generating and tourist receiving countries.
Tourism and its politics transcend national agendas. Womens rights activists, child rights activists,
environmental activists and the peace movement have all used tourism and its positiv e and negative
impacts to focus attention on their causes. Poor nations have taken up their right to control their own
tourism development. The SAARC conference has set up a Tourism Committee to enhance tourism
contact between the countries of the region, to promote better relations through tourism. ASEAN has
a tourism committee that is investigating the idea of an ASEAN passport, easier interregional
currency exchanges and special fares. Thus we can see that tourism, since the beginning of the last
century, has been a highly politicised phenomenon, although this feature of tourism is not always
recognised.
Here it is important to note that there are Trans National Companies whose tourism policies have
often been taken casually. These are the international hotel chains, airlines and tour companies which
dictate standards and prices in the industry worldwide. They have a political impact since they often
own assets that are larger than any national company. In some cases they have larger access to capital
and borrowing than the country in which they own assets. These organizations are not neutral as to the
ways in which tourism should develop. They favour large-scale enterprises and global marketing
techniques and have played a significant role in adopting the slogan of sustainable tourism as a
marketing strategy to cut down the role of the unorganised sector in providing tourist services.
Although the tourist is seen as a carefree individual pursuing a personal motivation, the tourism
industry is a large, intensely competitive, resourceful and capital intensive industry which has grave
consequences for the social and economic well being of people and communities all over the world.
This fact makes it necessary to study the complexity of the relation between tourism and politics. To
understand this aspect, let us list some of the political issues related to tourism .The two broad areas
that could be considered as classificatory are: a) the relations between different political systems and
b) the impacts that follow from national public policy.
Tourism is likely to remain a significant economic activity through the twenty first century. Over 125
nations consider tourism important and for at least one third of them, tourism constitutes a leading
industry providing employment and foreign exchange. For the United States, which has a large and
diverse economic base, tourism is the second largest industry, one of the top three revenue earners for
39 of the 50 states of the Union, employing 6 million people and is the largest tradable services
export. However, political analysts do not see the need to reflect on this important activity.
In many countries where Ministries of Tourism have been established, it is the economic impact
rather than the political potential that has led the policy framework. Tourism has a direct impact on
International Relations, Public Administration and public policy making. In the international field,
Lijphart has identified two areas. These include tourism flows and regional integration and the
symmetry or asymmetry of tourism relationships. These reflect the centre-periphery relations between
countries involved in sending and receiving tourists. By the centre we understand those countries that
dominate tourism flows, both inbound and outbound and by the periphery we understand those
countries that are on the margins of tourism activity, like the countries of South Asia.
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long as South Africa followed the policies of Apartheid many countries had put a ban on their citizens
for travelling to that country.
Tourism has been used in a variety of ways as a tool by the governments. For example :
1) Tourism flows can be the precursors of military and economic aid; they can also lead to the
formation of economic and trade blocks and can be the basis of foreign policy linkages between
countries. This aspect is most clearly represented in the visa policies of governments towards
tourists. In fact the issue of tourist visas has always been very high on the agenda of the tour
operators associations, who see this as one of the stumbling blocks to the growth of tourist
arrivals in third world countries.
2) China, Cuba and Vietnam have attempted to use tourism to undermine economic and political
isolation and to attract foreign investment, given that they do not conform to the capitalist
economic model. Through the liberalization of the tourism sector they have attempted to gain
both economic and political benefits. Countries under Martial Law have attempted to use tourism
to get better international coverage. They have tried to show their progress and development, and
to convey a feeling of the improved law and order situation in their countries. Since tourists do
not concentrate on the lack of civil liberties and censorship laws, they often return home with an
impression that people are happy and economically satisfied under a military dictatorship.
3) Tourism is used to boost immigration, domestic morale and as a political weapon. Tourism
enhances a nations sense of internal security and legitimacy. The entire incentive approach to
attract the giants of tourism to ones country indicates the political need of governments to be
significant players in the international tourism market. The short-term nature of most tourism
investments therefore denies a company the time and the ability to develop cordial relations with
the communities and people of the destinations where it operates.
4) On the other hand there are examples of the use of tourism to promote reconciliation between
nations. The Indo-Pak Peoples Forum for Peace and Friendship is using visits between the people
of India and Pakistan to lobby their Governments to encourage peace and friendship. By
becoming a host nation we begin to understand the sociology of the visiting nation. Through such
exchanges the travellers views become politically significant and the tourists become a politically
signific ant class that can create a good or a bad image of the country they visit. It is for this reason
that tourists are often the victims of terrorism. An example is the hi- jack of the Indian Airlines
flight from Kathmandu to Delhi, which was bringing tourists from India back home. Tourists can
alter the political stakes between countries in ways which other terrorist attacks cannot. An
example is the tacit support given to the Taliban by the United States, until the bombings of U.S.
Embassies in Africa by Osma Bin Laden, who has taken political asylum in Afghanistan. The
recent controversy over alleged remarks of the cinema idol Hrithik Roshan created a disturbance
in Indo-Nepalese relations that were limping back to normal after the hi-jack incident.
5) Tourism taxes have political implications as well, since they encourage or discourage the flow of
international tourism. These include exit taxes, passport charges, visa requirements, foreign
exchange restrictions and entry and exit restrictions. Similarly touris m legislation is also a
minefield of political impacts. Treatise like the Helsinki Accords, The Warsaw Convention,
Aviation Laws, Admiralty Laws, Hotel Laws etc. are likely to become increasingly important
diplomatic issues in the coming years.
It is also important to see how international travel and tourism affect jingoism, parochialism and
stereotypes about nations and how tourists become interested in political activity in the host country.
It is interesting to note that world spending on tourism is now higher than military expenditure. Can
we then investigate why the myth of international understanding and goodwill is not being realized
through tourism despite the potential to create a better and more peaceful world?
Perhaps one reason that this potentia l of tourism has not been realized is that there is a complete
absence of the political perspective in most tourism research and in the approach to tourism education.
In the former case, it is assumed that tourists follow opinion leaders and are not consid ered opinion
leaders themselves. To research his or her impressions is a cost no one wants to bear. In the second
case, the thrust of tourism education is industry oriented with an emphasis on product diversification,
standards and delivery systems. When the League of Nations had identified Tourism as a tool for
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peace in 1917, the need for peace was acutely felt in the wake of a world war. To day we see more
local conflicts in which the major economic powers are no longer looking for military domination but
for economic domination. Peace takes a back seat in such a new configuration.
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provide and deliver services in implementing a tourism policy therefore become critical. The politics
of tourism administration has seen the short term gains sideline the long term, balanced growth of
tourism and its integration with the overall economic and political goals of the country.
For example, India saw tourism as a form of encouraging national integration. Despite 170 million
tourists on the move in the country, understanding between different regions and ethnic groups has
not grown upto the expectations. In certain states separatist and militant movements for autonomy and
independence have taken place for political reasons, adversely affecting tourism. Tourism was not
integrated in the overall development plan. Public administration was concerned with industry,
agriculture and other services and did not see the importance of tourism as a political tool for
integration. While the economy became integrated along with the polity, it did not bring equal
opportunity to the people of these regions to participate in its benefits. The federal nature of our state
was undermined and the conflicts between local, regional and national prio rities were not resolved. It
is questionable whether international tourism in such regions will succeed where domestic tourism has
yet to take off.
Similarly, tourism as a policy sector has also been neglected. Tourism policy is different in the sense
that it is not crisis driven. It is not born out of constraints and hard choices. Tourism policy reflects a
choice. It also reflects the interest of the local elite. Bhutan and Burma reluctantly opened their doors
to tourists when they had no other economic options. Saudi Arabia has oil and therefore does not need
tourism. It is probably for this reason that in the early stages, tourism policy is not an area of conflict
but of consensus. When NGOs have raised objections to tourism plans local and national political
representatives have been slow to respond, since the policy indicators do not reflect any division
between the elite of different regions and ethnic groups. All of them have access to leisure, recreation
and travel. This access should not be denied to them and therefore they view tourism as beneficial.
Tourism becomes an area of conflict only in the later stages of its implementation, when the social
costs have to be borne. It is far easier to measure the gross impact of tourism activity than to evaluate
the net benefit from tourism. It is extremely costly to tally the net value of tourism after adjusting the
promotional, administrative, social and psychological costs.
Tourism policies reflect the urban baises of tourism, and almost all urban areas have developed
tourism policies. Rural and environmentally fragile areas are also developing a policy for tourism
when they say no to tourism. Given that tourism has both positive and negative impacts and that there
is the use of tourism as a political, economic and social weapon, the use of a policy for tourism
development becomes increasingly important. In the current world trade order, the use of non-tariff
barriers like sustainability through environmental impacts and child labour protection regulate trade
between countries, again underwriting the importance of a policy perspective where tourism is
concerned.
In most countries, both capitalist and socialist, the direction of tourism policy has been to create
leisure and tourism opportunities for the residents. In the developing countries the reverse is true. It is
the visitor and not the resident that is the focus of policy. Secondly, tourism policies are closely linked
to environmental policies and concerns. Private ownership of time-shares, vacation resorts, second
homes and convention centres are putting the eco-system at risk. The local dependence on land use
taxes is often the reason for the unsustainable development of recreational and tourist spots. Despite
the experience of three decades on the impacts of tourism in developing countries, our tourism
policies have not changed. It is a part of the political importance of tourism and its elite structure in
third world countries that no policy shifts have been observed.
Political and administrative leaders do not ask if it is wise to develop tourism. They only ask
how fast it can grow. This is because of the assumption that even where a country does not have the
infrastructure the tourism dollar will flow in because of the attractions. Delhi is a major entr y point for
tourists. It is a historical city. However it has a high level of air pollution and a poor water supply and
sanitation system. It also has a power crisis. The tourism planners do not consider these negative
factors. On the other hand, the indus try representatives demand incentives to increase tourism flows
and then come up against the infrastructure bottleneck. They then demand short-term solutions to
these developmental bottlenecks. The highway plan can be cited as one such project. The demand for
disinvestments of the airlines and the privatisation of the Railways is another contemplated move to
bring in private and foreign investment as far as tourism policy is concerned.
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Every Tourism Plan has an agenda, explicit or otherwise. This agenda is political, since the industry
and the resident populations are participants in the political process of democratic countries. Since
politics represents different interests, even laudable aims like the development of backward regions or
income generation for youth and women, will be related to the regional, community and other vested
interests of the ruling elite. Peoples movements in the field of tourism development have therefore
taken up the issue of dispersing the benefits and diminishing the negative im pacts of tourism in the
country.
Poor nations need tourism the most and yet they are the ones with the failed possibilities or wrongly
executed projects. In the Asian region the emphasis on tourism has led to a rapid growth of
destinations. Beaches, mountain ranges and historic sites have been over used by tourism with grave
ecological, social and cultural consequences. It is questionable whether one can turn
underdevelopment into an exotic product. The horse and cart theory rests on such objectives.
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regional movements are the highest in the world. It is this element that is of economic, cultural and
political importance. However the policy makers have not attempted to measure its importance since
it is not seen as an indicator of the countrys attractiveness to tourists. Today when the reforms have
opened up the possibilities of foreign travel and the GATS has opened up the travel industry to
foreign operations; the outbound market from India is significantly larger than the international in
bound market. However, domestic tourism continues to grow at a phenomenal rate, only constrained
by the limited services available across the country. Whereas the high spender is going abroad for the
same price as a holiday at home, it is the middle segment that has taken to domestic tourism with
enthusiasm.
India has had to contend not only with political problems at home, but given its location, it is affected
by the political problems of its neighbours and regions. Our policy makers are not able to project the
size of the country or to engage in a damage control exercise in time to ensure that the image of
political violence and unrest do not damage our tourism potential. Considering that India has had the
longest experience in tourism policy and planning in the region, it is surprising that implementation is
ad hoc. There have been five policy phases that reflect the politics of tourism in India.
Between 1949-66 tourism grew slowly with little governmental intervention. Tourism was assumed to
be a state subject and since the states were inactive, the centre played no role, even though a
Department of tourism was established in 1958. The second phase that covered the period 1966-77
was one of limited but considered incentives for the development of tourism and the entry of the
government as a catalyst with the establishment of ITDC. Policy direction was in the encouragement
of balanced growth, self-reliance and diffusion of economic benefits. The Third phase, called the
Janta movement lasted from 1977-79, where the policy thrust turned towards domestic tourists and
educated and enlightened budget tourists from abroad who would create a better word of mouth image
for India. The fourth phase began in 1980. It is here that rapid tourism development and setting of
targets begins. The fifth phase is related to unprecedented commitments to the private sector to
increase the pace of tourism to India by the government in 1984. Tourism was recognized as an
industry and the Planning Commission tripled its allocation to tourism. It is in this phase that several
distressing developments have taken place in the effort to diversify the tourist product. It seems that
third world planners are unable to resist the temptation to go for grandiose projects when they get the
opportunity to be at the helm of tourism affairs.
The attempt to establish world standards in services and facilities as well as education has led to
completely abandoning self-reliance and priorities of our own developmental needs. In the era of
globalisation more and more benefits of tourism are passing into foreign hands whilst the costs to us
are being borne by those sections that do not have access to tourism.
This brief review of the policies of India and China, the two potential giants of tourism in Asia reflect
the close links between tourism and politics that require further scrutiny and a more pluralistic
perspective than we have had.
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14.7 LET US SUM UP
Tourism is influenced by politics and in some cases it is vice-versa also. On the one hand, the political
ideology or the policies of the government affect tourism policies and on the other, tourism has been
used as a political tool for a variety of purposes by the governments. Political stability is essential for
tourism. War, terrorism and political upheavals severely affect tourism flows, irrespective of their
location. This Unit cited examples of the way political changes in a country have a bearing on tourism
flows. There is a close link between tourism and public administration as the bureaucrats and
politicians have a major role in determining the tourism policies. Tourism planning, tourism
legislation, tourism regulations, etc. all depend on the policies of the government which again are
determined as per the ideology and programme of the political party in power.
1) Read Sec.14.2 for your answer keeping in view that practically all aspects of tourism planning
and operations are mostly governed by political decisions.
2) Sec.14.5 deals with this in detail.
3) Sec.14.3 gives this in detail.
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