Public Policy in Philippine Tourism - Essay Example

Public Policy in Philippine Tourism Introduction To talk about Philippine tourism and the policies imposed upon it by the government and the people means to speak about its rich history. It is an archipelago of thousands of islands, inhabited by many ethnic groups, tribes and people who have experienced colonization from the Spaniards down to the Americans. Because of this historical happening, it has formed and moulded the culture and behaviour of the people. The Philippines is a unique country with a unique history. The people experienced two colonizers and have ingrained in their psychic the so-called colonial mentality. But they are a happy and hospitable people. It is a common public policy to smile and be hospitable to any foreigner who comes in and visit one of their islands. The Filipinos are proud of their race. They smile when they see a tourist: that’s tourism policy number one. Tourism has been a flourishing industry in the Philippines and an attractive business venture because of its beautiful scenic spots, baroque churches, white beaches and various heritage sites, a legacy of the hundreds of years of Spanish colonization, and subsequently the American colonization which led to the Philippine independence on June 12, 1898. However, the Philippine tourism industry has passed through various stages of decay and then development. If public policies had been enforced to the letter, the Philippines could have been the number one tourist destination in Asia because of its rich heritage, historic spots, rich natural resources, and a hospitable people willing to receive any guests who have entered into their shore lines. Politics and perhaps greed marred the history of a great nation. Tourism was used for political purposes during the regime of President Ferdinand Marcos. Tourism policies during Marcos’s time were concentrated on government efforts to gain support from foreign governments, especially during the period when he declared martial law. There was no popular support or cooperation from the local community who had mixed feelings of fear, hatred and remorse over the dictatorship. Human rights violations were rampant. Resorts, hotels and other business establishments were owned by Marcos ‘cronies’. Rebel groups started to surface, and there almost anarchy in the streets. People power led by Corazon Aquino, wife of the martyred opposition leader Benigno Aquino Jr. led to the toppling of the dictatorship. Tourism was totally down at that time. (Gray, 2008, p. 369) When the dictator Marcos was overthrown by a people-power revolt, Corazon ‘Cory’ Aquino took over, and once again, her government used tourism as a tool to reassure the international community, particularly Japan and the United States, that she was in control and that her government had gained popular support. There was a slight improvement in tourism programs of the government. The people showed support to the government and to its programs. The international community was convinced that there was peace and tranquillity in the islands. Public policies for tourism centred on making the Philippines the ultimate destination of people seeking refuge from city life. Slowly, tourism was alive again. (Gray, 2008, p. 371) However, the ‘honeymoon’ period between the new government and opposition did not last long. Opposition to the new government continued to mount protests and coup d’états, making tourism once again a dream of people who wanted peace. The new administration of President Benigno Aquino III, son of Corazon Aquino and martyred Benigno Aquino Jr., has some bright plans to jumpstart the tourism programs as envisioned by the newly created Tourism Infrastructure and Enterprise Zone Authority, formerly named the Philippine Tourism Authority. (Tourism Infrastructure and Enterprise Zone Authoriy, 2010) However, tourism is at present going in an up-and-down trend caused by terrorism and political factors. Tourism in any country is always affected by threats of terrorism. In the farther south, in Mindanao, there are various groups seeking to separate from the republic. The Abu Sayaff group, which has links to Al Qaeda, the international terrorist group headed by Osama bin Laden, is responsible for various kidnapping incidents involving tourists, making tourism in the south totally down. That portion of the country is supposed to be a tourist haven because of the rich natural habitats, but these habitats have become home to terrorist groups. (Travelblog, 2006) 2. Background Tourism is one of the major dollar earners of most countries in the world. It is also one of the largest industries in the world when it comes to output, investment and employment. (Bosselman et al., 1999, p. 1) Tourism cannot be talked about without mentioning other subjects involving contemporary culture which is influenced by globalization, multiculturalism, transnationalism, and so forth (Ness, 2003, p. 3). Tourism is a mix of various phenomena that include cultural, economic and political (Burns and Novelli, 2007, p. 1), but there is now a renewed focus on it with the immergence of what is called international tourism (Huybers, 2007, p. 5). It is imperative therefore in this paper to talk of these phenomena when we focus on public policy of the Philippines about tourism. Unlike the other members of the Association of Southeast Asian Nations (ASEAN), the Philippines cannot rely much on tourism as a dollar earner. The government has to institute measures to promote tourism. Public policy remains focused on acquiring foreign reserve for the economy to flourish. Tourism should have the number one dollar earner. However, there are still some difficulties considering that the new government is just a few months’ old. The Philippine economy now depends on overseas-Filipino-workers’ (OFW) remittances and the volatile markets of a few products such as sugar, pineapple, coconut, and recently electronic products, being exported to major countries like the United States. OFW remittances remain the lifeblood of the economy. If it were not for the billions of dollars sent by Filipinos from the Middle East and other countries, the economy could have collapsed. The present administration of President Benigno Aquino III has yet to prove how the government can push through with new reforms for the advancement of tourism. The government has to show political will in instituting reforms in the midst of mounting terrorism threats and travel advisories from at least six countries including the United States for their respective citizens not to travel to the Philippines, particularly the provinces in the southern portion of the country which are being threatened by a secessionist group. The Philippines is a developing country although in some respect it has been observed as more developed than some countries in the Association of Southeast Asian Nations (ASEAN). But when it comes to tourism, neighbours Thailand and Malaysia now have formidable tourism infrastructure due to their renewed efforts of gaining support from the private sector. Politics and the quest of a few greedy politicians for power have put it in a stagnant position, perhaps deteriorating during the time of the dictator Ferdinand Marcos, who ruled with impunity and countless human rights violation. There were other factors that affected the downward trend of tourism, some of them include the SARS scare and Islamic terrorism. (Beirman, 2003, p. 254) Nevertheless, the country is blessed with beautiful scenic spots, the likes of those in the Caribbean; but the spots have yet to show their full beauty. (Richter, 2005, p. 255) It is President Aquino and his government’s chance now to prove that they could turn the tide of negativity to sustainable development. Since they have got popular support, the people can help the government in installing tourism infrastructure and make the Philippines once again a haven of tourists. 2.1 Public policies The constitution of the Republic of the Philippines provides for the conservation of lands and tourist parks and the promotion of tourist destinations which may include national parks and other natural resources. (Section 2, Article XII of the Philippine Constitution) The centralised government agencies have been devolved in the present set up of the Philippines political system. The local government units, for example the city, municipal, and provincial governments have the local responsibility over the promotion of tourism destinations, considering that they can benefit from the taxes paid by tourists and from the economic activity in case of the influx of tourists in their locality. (The Local Government Code of 1991) The national agency that is taking the overall supervision of tourism is the Philippine Tourism Authority, which has recently been revitalised with a new name, the Tourism Infrastructure and Enterprise Zone Authority. It is now being headed by the former governor of Pampanga province, Mark Lapid. It was created by law to develop and promote tourism destinations in the country, but it is under the Department of Tourism headed by a Cabinet Secretary who reports directly to the President of the Philippines. (Tourism Infrastructure and Enterprise Zone Authority, 2010) The agency is mandated by law to enhance private sector participation in the development of tourism infrastructure in the country; implement privatisation efforts of some government facilities in order to contribute to the government income; to maximise collection efforts of the government by promoting tourism destinations; and to maintain a pool of talented professional and skilled employees and managers to handle tourism. (Tourism Infrastructure and Enterprise Zone Authority, 2010) The public sector sees the significant role of the tourism industry in the growth of the economy by providing local employment. The Philippines has a great portion of its population in poverty, and so promoting tourism is sometimes distracted with the slums and squatter colonies right in the heart of Manila. Some laws of the country protect squatter colonies; they cannot just be sent away and their shanties demolished. Laws and regulations are most of the times ignored by ordinary citizens and motorists, and law enforcement is weak; laws are not strictly enforced. There are smoke belchers, illegal loggers and other environmental violators, and the government is infested by corruption. (Bloom, 2009, p. 16) The aftermath of the recent presidential elections last July 2010 put to power the government of President Benigno Aquino III. Aquino’s presidency can restore some of the tourism infrastructure in place. 2.2 Problems in policy implementation Tourism policies have not been clear. Past administrations have had difficulties in implementing the policies, not for lack of professional and expert policy makers, but due to politics. The present public policy is to promote these scenic spots and make them major dollar earners. This is with the support and collaboration of the public and private sectors. The government acts as a catalyst and to help in what the private sectors are doing for tourism. The strategy is to develop a closer partnership and cooperation of all stakeholders involved in tourism. The World Tourism Organization has recommended that the government should not duplicate what the private sectors are doing in tourism so that there will be no overlapping of functions. (Cruz, 2005, p. 49) There are instances that conflicts arise between the government and private sectors due to the following: 1. The private sectors refuse to finance some projects because they don’t believe that it will generate profit, but the government has given it a go and has prioritized it due to its potential as a tourist spot. 2. A tourism project has no more market potential, and cannot be sold; the government may be forced to buy it, but conflict arises when the government has not enough money to buy the facility. 3. The government is forced to build low-cost “social tourism” which is devoted for the poor, the sick, and the aged. 4. The government encourages the private sectors to develop tourism activities through pilot projects. (Cruz, 2005, p. 50) In areas where there are no tourism plans, the government identifies the tourism opportunities so that the private sector can invest and provide capital. 2.3 The growth of tourism in the Philippines The presence of beautiful beaches of international standards, mountains and thousands of islands, not to mention the declared UNESCO World Heritage sites, makes the Philippines an attraction to tourists from neighbouring countries in Asia, Europe and the United States. Likewise, it has a rich cultural heritage that has never waned even during economic hardships and natural calamities. Filipinos celebrate fiestas, holidays and anniversaries like they are a part of religious obligations. During Lenten season, the Catholic’s celebration of the Holy Week which observes and honours the Lord Jesus’ passion and death on the cross, Filipinos celebrate it with the actual crucifixion of some of their devotees. Although this is not permitted by the Catholic Church, the penitents flag their bodies, and the climax is the crucifixion on a hilltop. At least three penitents are crucified, their hands extended and the nails are pounded hard injuring the penitents who are tied to the three wooden crosses, commemorating the crucifixion of Jesus Christ and the two criminals beside him, more than two thousand years ago. (The Oxford Business Group, 2008, p. 128) What has this to do with tourism? It has a lot to do with tourism. In the city of San Fernando, in the province of Pampanga, the local government unit and the townspeople prepare this tourism promotion annually. The local government allocates a portion of the budget for the expenses. Local and foreign tourists flock to this city during Holy Thursdays and Good Fridays of any year to witness the ‘crucifixion’. Economic activity is enhanced during these days, at a time when the whole Christendom observes fasting and abstinence. (City of San Fernando, 2010) In the same city of San Fernando, the people celebrate the so-called ‘feast of the frogs’, also known as ‘pistang tugak’ (the vernacular for ‘feast of the frog’) where the people conduct the ‘frog race’, actually a few-meter run for the frogs. After that, they cook the frogs as exotic food. Tourists flock and take their videos of the frog race. Residents of the city also celebrate Christmas with a competition of giant lanterns as huge as trucks and lighted with different colours. The competition is supported by the people, the city government, the barangays (which is the smallest political unit), and a portion of the budget from the city government is also allotted for this occasion. It is not a futile exercise because local and foreign tourists flock to the city to witness the whole night’s affair which is usually done when Christmas is just a few days away. (City of San Fernando, 2010) The Filipinos also observe fiestas and Christmases that activate tourism in most parts of the country. Tourist spots are present everywhere. If you go northward, you’d pass by the ‘Hundred Islands’ in Lingayen Gulf, a constant feature in movies depicting World War II, but now a national park. But if you divert to the Visayas islands, there are a number of islands attractive to tourists, one of which is Boracay. The island is at the tip of the Visayan islands, and it is equipped with fine beaches with white sand. It is also a constant scene of reality shows featuring local movie stars. Beautiful white beaches of world class are sprawling everywhere in the Visayas and Mindanao. In each of these tourist destinations, the local community has a big role to play in the promotion and catering to the needs of the tourists. Going further east in the Visayan islands are some of the beautiful cities, like Bacolod, Iloilo and Guimaras. Bacolod is the prime city of Negros Occidental which is inhabited by the wealthy hacienderos who have tasted the abundance of life when sugar was the prime commodity imported by the United States. The poor natives are there as sacadas or those who till the sugar cane fields and harvest the plants. Bacolod has cheap hotels and lagoons. The poor people have made use of its tourist spots for livelihood. The sacadas have resigned their fate and are now catering to tourists. (Philippines Board, n.d.) Lingayen Gulf in Pangasinan, a few kilometres north of Manila, is a historical site because it is the site of one of the fierce sea battles fought between the Japanese and American forces reinforced by Filipino guerrilla forces during World War II. The Hundred Islands is not really hundred islands, although the number is approximate. These places are the source of livelihood of most of its inhabitants, aside of course from fishing. Tourism is flourishing. The national government, along with the local government and the natives of Pangasinan have combined their efforts to attract tourists and make tourism their primary source of income. The Hundred Islands National Park has yet to be fully developed; at present only three islands are available for tourists. (Hundred Islands National park, n.d.) The protection and conservation of the Hundred Islands’ ecosystem are placed in the hands of the Philippine Tourism Authority, but there is not enough safeguards enforced on the islands. (Kalagayan, 1990, p. 51) Government people and local natives are focusing on acquiring funds for the development of the national park. This can be a primary source of livelihood for the people and taxes for the government if full development is instituted. The local government has been looking for funds to jumpstart the sustainable development of this tourist spot. The public policy is to develop it through cooperation between public and private sectors. Problems have occurred in this endeavour because there is not enough private sector participation. Investors have been shy to share the needed capital because the existing tourism infrastructure in the province is not fully operational. The government has to do more positive moves to make tourism an attractive industry for investors. The declared heritage sites by the UNESCO World Heritage Convention have made the Philippines an attractive tourist destination. These wonderful places include Vigan City in Ilocos Sur, the Tubbataha River in Palawan, the Rice Terraces of Banawe, among others (Thrifter, 2008). There is an endless list of attractions and beautiful countryside tourist destinations. A list of the properties and sites can be found in the website of the World Heritage Convention (http://whc.unesco.org/en/statesparties/ph). The Rice Terraces of Banaue was built some 2,000 years ago with the bare hands of the local folks of the area. It is the source of income of the people, and of course, source of food. Rice is a staple food of the Filipinos. The government and the people have concentrated on improving this heritage site because it is deteriorating. UNESCO is helping in restoring the site to its former grandeur and beauty. (World Heritage Convention, 2010) Just near the Banaue Rice Terraces is the city of Baguio. This is known as the highest city in the world because it was built on top of a mountain, one of the highest peaks in the world. Baguio has a local counterpart for the national government’s tourism office, and that is the Baguio Tourism Council. The working of this Council is an example of tourism quality management: partnership of public and private sectors works on this Council. All hotel owners and tourism-related commercial establishments are represented in the Council, including the government agencies such as the Baguio City Government and the Department of Tourism. The Cordillera Group of Artists is also represented. The city is a haven of artists who seek refuge in the serenity and artistic atmosphere of the mountainous city. (United Nations’ Economic and Social Commission for Asia and the Pacific, p. 65) Baguio City is visited by tourists because of its many beautiful tourist spots (Go Baguio, 2010), added with the hospitality and cooperation of the local natives and the collaboration of various sectors, both public and private. The Burnham Park is a favourite tourist destination by both local and foreign tourists. Local folks have their means of livelihood in the park by serving and catering to tourists. Economic activity is alive in this portion of the city. The Rice Terraces of Banaue SOURCE: Condensed from the World Heritage Convention, available from http://whc.unesco.org/en/list/722 [Retrieved 17 November 2010] On the other hand, the baroque churches scattered in many towns and cities across the Philippines, had been built hundreds of years ago, sometime in the sixteenth up to the nineteenth centuries, during the time of the Spanish colonization, climaxing in the independence of the Philippines and the start of the Philippine Republic. Baroque churches have been visited by foreign tourists. The unique architectures are a revelation to the rich history of the Philippines. (World Heritage Convention, 2010) Other attractions are in Cebu, which is an island province. It has old baroque churches, Taoist temple, the monument of Lapu Lapu, the native who killed Magellan, the leader of Spanish invaders who were sent by the Spanish king to Christianize the Philippines. A landmark is the wooden cross which is believed to be situated in the same spot Magellan planted his cross to mark the colonization and Christianization of the Philippine archipelago. (Live Cebu Tours, 2010) Being an archipelagic country, the Philippines has porous borders. The islands in the south, which are known as the ‘backdoor’ because they are not closely guarded and you can easily travel to other countries like Indonesia by way of a small commercial boat, are a tourists’ haven. The Philippines has purged partnerships with neighbouring Brunei Darussalam, Indonesia, and Malaysia, to make Davao, the ‘backdoor’ city, and surrounding places, as development areas. (Ness, 2003, p. 113) Puerto Princesa in Palawan island, just near Davao, has also been developed, with the help of the UNESCO Development Programme. The strategy involves community-based tourism in which the local folks, the young and the old, the public and private sectors, join hands to promote tourism destinations. (Gray, 2008, p. 375) This close coordination between the different sectors of the community has proven to be effective in developing tourism as a major source of livelihood for the local population, and income in the form of taxes for the government. Where there are tourists, there is economic activity. Still in the south of the country, in Zamboanga City, there are beautiful tourist spots being taken care of by local residents. The city is inhabited by an ethnic group who speaks ‘Chabacano’, a dialect which has some semblance to the Spanish language. The city however is a melting pot because of the presence of other ethnic groups. Economic activity is very much alive in this city. It is also home to the regional headquarters of the Armed Forces of the Philippines, which keeps guard the presence of kidnap-for-ransom groups and other criminal elements. Foreign tourists are advised by their respective governments not to venture into this city. (Travelblog, 2006) The situation affects tourism; over the past years tourists from different countries had been kidnapped. Some were killed while others were released on ransom. It is the duty of the government to safeguard the lives of the people, local and foreign. The local inhabitants, no matter they want that tourism should improve in their community, could do nothing except rely on the government and to God for peace and unity. 3. Conclusion The Public policy of establishing tourism infrastructure through a close partnership between the public and private sectors has proven to be effective in developing tourism as a major source of income for the local folks and for the government in the form of taxes. This is demonstrated in the various examples of public policies in the Philippines setting mentioned in this essay. It is of great importance to any place or country to develop first the community, emphasizing on the capability of the natives or inhabitants to promote tourism, and not just to promote but to have an active part in dealing or living with tourists and tourism. It has to be a part of their lives. Tourism can alleviate poverty. The folks have to perform a hands-on role in formulating those policies because they are the ones directly involved. Tourism affects their livelihood, family, and the whole society in general. The most recent public tourism policy the Filipino people are crying and pushing for is to allow the eight-division world boxing champion Manny Pacquiao be a part of the tourist attraction; in fact, it has already happened. The world champ, who has been hailed by the Filipinos as a hero, is a boxing phenomenon when he earned the eighth belt upon defeating former world champion Antonio Margarito. (Sports Newscaster, 2010) Pacquiao can boast economic activity and tourism, at the same time promote the Philippines and erase all the negative news about the country. This is what the Filipino people want. References Beirman, D., 2003. A comparative assessment of three Southeast Asian tourism recovery campaigns: Singapore Roars: Post SARS 2003, Bali Post- the October 12, 2002 Bombing, and WOW Philippines 2003. In: Y. Mansfeld and A. Pizam, Eds., 2006. Tourism security and safety: from theory to practice. Oxford, UK: Elsevier Inc. p. 254. Bloom, G., 2009. Philippines. Oakland, CA: Lonely Planet Publications Ltd. p. 16. Bosselman, F. et al., 1999. Managing tourism growth: issues and applications. United States of America: Island Press. p. 1. Burns, P. and Novelli, M., 2007. Tourism and Politics: introduction. In: P. Burns and M. Novelli, Eds. Tourism and politics: global frameworks and local realities. Oxford, UK: Elsevier Ltd. p. 1. City of San Fernando, 2005. Available from: http://www.cityofsanfernando.gov.ph/ [Retrieved 18 November 2010. Constitutional Commission of 1986. The Constitution of the Republic of the Philippines. Quezon City, Philippines: National Government Center. Cruz, Z., 2005. Principles of tourism part II (Updated edition). Manila, Philippines: Rex Book Store, Inc. p. 50. Go Baguio, 2010. Baguio attractions and historical landmarks. Available from: http://www.gobaguio.com/attractions.html [Retrieved 18 November 2010]. Gray, J., 2008. Responsible destination development: Puerto Princesa, Palawan, Philippines. In J. Cochrane, Ed. Asian tourism: growth and change. UK: Elsevier Ltd., p. 369 Hundred Islands National Park, n.d. Available from: http://www.travel.pangasinan.com/Places/100-island/100-island.htm [Retrieved 17 November 2010] Huybers, T., 2007. Tourism in developing countries: economics and management of tourism 2. UK: Edward Elgar Publishing Limited. p. 5. Kalagayan, N., 1990. Institutional and legal framework. In: L. MacManus and C. Thia-Eng, eds. The coastal environmental profile of Lingayen Gulf, Philippines. Manila, Philippines: International Center for Living Aquatic Resources Management. p. 51. Live Cebu Tours, 2010. Tourist Attractions in Cebu and Mactan Island. Available from: http://www.livecebu.com/placestosee.htm [Retrieved 18 November 2010]. Ness, S., 2003. Where Asia smiles: an ethnography of Philippine tourism. United States of America: University of Pennsylvania Press. p. 3. Philippines Board, n.d. Tourist spots in Bacolod – Philippines. Available from: http://www.philippinesboard.com/tourist-spots-in-bacolod.php [Retrieved 18 November 2010] Richter, L., 2005. The Philippines: the politicization of tourism. In: Y. Apostolopoulos, S. Leivadi and A. Yiannakis, Eds. The Sociology of Tourism. New York, USA: Routledge. p. 255. Oxford Business Group, 2008. The Report: the Philippines 2010. Manila, Philippines: Oxford Business Group. p. 128. Sports Newscaster, 2010. Pacquiao vs Margarito results and post game boxing fight analysis. Available from: http://www.sportsnewscaster.com/pacquiao-vs-margarito-results-and-post-game-boxing-fight-analysis/7300/ [Retrieved 18 November 2010] Thrifter, 2008. Top ten UNESCO World Heritage Sites in the Philippines. Available from: http://trifter.com/asia-pacific/philippines/top-10-unesco-world-heritage-sites-in-the-philippines/ [Retrieved 16 November 2010] Tourism Infrastructure and Enterprise Zone Authority (Philippine Tourism Authority), 2010. Pushing tourism ahead: a message from the general manager. Available from: http://www.philtourism.com/gm_message.html [Retrieved 16 November 2010]. Travelblog, 2006. Mindanao; Abu Sayyaf the MILF and a bloke called Joe. Available from: http://www.travelblog.org/Asia/Philippines/Mindanao/blog-44087.html [Retrieved 18 November 2010]. United Nations’ Economic and Social Commission for Asia and the Pacific, Poverty alleviation through sustainable tourism development. United Nations publication. ISBN: 9211201861, 9789211201864. World Heritage Convention, 2010. Philippines. Available from: http://whc.unesco.org/en/statesparties/ph [Retrieved 16 November 2010]. World Heritage Convention, 2010. Rice Terraces of the Philippine Cordilleras. Available from: http://whc.unesco.org/en/list/722. [Retrieved 15 November 2010] Other useful read: General Primer on ‘The Local Government Code of 1991’, Republic of the Philippines Read More