SAFEGUARDING LOCAL CULTURES AND PROTECTING ENVIRONMENT FOCUS OF COMMISSION ON SUSTAINABLE DEVELOPMENT DISCUSSION ON TOURISM
Press Release
ENV/DEV/502
SAFEGUARDING LOCAL CULTURES AND PROTECTING ENVIRONMENT FOCUS OF COMMISSION ON SUSTAINABLE DEVELOPMENT DISCUSSION ON TOURISM
19990420 The Commission on Sustainable Development this afternoon discussed ways to promote sustainable development through tourism while safeguarding local cultures and protecting the environment. Representatives of government, industry, non-governmental organizations (NGOs) and trade unions engaged in the interactive dialogue as part of the Commission's consideration of sustainable tourism.Tourism is one of the Commission's four substantive themes for its seventh annual session. The other themes for the two-week session, which will last through 30 April, are: oceans and seas; consumption and production patterns; and implementation of the 1994 Barbados Programme of Action for the Sustainable Development of Small Island Developing States. Those issues are taken up as part of the Commission's overall mandate to monitor implementation of Agenda 21, the action plan adopted at the United Nations Conference on Environment and Development (UNCED) (Rio de Janeiro, 1992).
While the Commission was discussing protecting the environment, a sovereign State's chemical fertilizer plants and oil refineries were being bombarded, China's representative said. The bombing of the Federal Republic of Yugoslavia was generating air pollution and toxic spills into the formerly blue Danube, and exposing people to terrible health threats. The matter must be addressed.
Another speaker stressed the great potential of the artistic community for educating people on sustainable development. He called for the creation of networks of musicians and artists to promote sustainable tourism. "We want to bring soul to Agenda 21. The musical scores for Agenda 21 have only begun to be written", he said.
The spirituality of indigenous peoples must be taken into account by the tourist industry, a speaker said. Symbols of genocide -- such as the remains of the Incas or other groups -- should not be used to attract visitors. Authorities often used natural formations as tourist sites and ignored their spiritual importance to indigenous people. Indigenous peoples and cultures were marketed by the tourism industry and sold as a product with little or no compensation going to them, another speaker said. Instead of big hotel chains
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and companies moving into their territories, indigenous peoples would prefer to set up micro enterprises to serve visitors.
A number of speakers emphasised that Governments must consult with local communities before initiating projects. No one disagreed with the importance of local decision-making, but for local groups and people to make sound decisions, they required sound information, the Commission's Chairman, Simon Upton (New Zealand) stressed.
Also during the discussion, a speaker stated that for tourism to be sustainable, jobs must be sustainable. That, in turn, required education. The industry was dominated by part-time workers and others that depended on tips for income.
At the outset of the meeting, the Commission heard speeches from representatives of each of the four groups, and also from representatives of Greece, Panama and Turkey on efforts to promote sustainable tourism.
Representing business, Karen Ford-Warner of the Caribbean Tourism Organization said the world's largest industry was often unfair and that local communities often did not share in its benefits. Wilfredo Alamgui, Third World Network, speaking for NGOs, said that according to the World Bank, 85 per cent of income from tourism remained in the hands of outside interests. He called for information and awareness-raising initiatives so local communities could truly participate in decision-making.
Speaking for trade unions, Indira Saxena of the Commonwealth Trade Union Confederation drew attention to the poor working conditions endured by many in the tourism industry. In India, some four-star hotels had such poor working conditions that employees suffered from severe diseases and birth defects.
On behalf of local authorities, the Mayor of Jinja, Uganda, J.S. Nsubuga-Bewayo, said that sustainable tourism was hampered by excessive reliance on market mechanisms to guide development and consumption decisions. The market assumed that issues of central importance, such as public safety and travel congestion, would be addressed by another sector.
During the course of the discussion, interventions ranged from proposals for practical action to statements of principle. The interactive dialogues on tourism are to assist in drafting the outcome recommendations from this seventh annual Commission session.
The Commission on Sustainable Development will meet again at 10 a.m. tomorrow, 21 April, to continue its segment on tourism, focusing on the coastal impact of tourism.
Commission Work Programme
The Commission on Sustainable Development met this afternoon to continue its consideration of sustainable tourism. It was to hold its third multi- stakeholder dialogue on the subject, with participation from representatives of government, industry, non-governmental organizations (NGOs) and trade unions.
Each dialogue follows the same format: there are opening statements by each of the four groups followed by two country presentations and then an interactive segment. This afternoon's dialogue is to focus on promoting broad-based sustainable development through tourism, while safeguarding the integrity of local cultures and protecting the environment. (For further background on the work of the Commission during its current session, see Press Release ENV/DEV/498.)
Statements
KAREN FORD-WARNER, Deputy Secretary-General, Caribbean Tourism Organization, speaking on behalf of business, said that in her region, one of every four jobs related to tourism. As the world's largest industry, travel and tourism could lead sustainable development practices in small and large communities. But to be sustainable, tourism must take account of environmental and socio-economic changes. Once all the key stakeholders agreed on the limits of change, a tourism management plan could be developed.
There were many examples on how the impact of travel and tourism had been damaging to environment and people, she continued. That was due to several factors, including a lack of awareness, a lack of commitment on the part of some operators, a weak institutional framework with inadequate controls on tourism development, and unfair tourism, where local communities did not share in its benefits. Large flows of visitors to fragile areas stressed limited supplies, such as water. Local supply chains were sometimes distorted to meet demands. Tourism could also result in prostitution and other social ills.
She then reviewed a number of regional efforts to make tourism sustainable. The establishment of the sustainable tourism zone by Caribbean States treated community development as a key strategy. Guidelines for the Caribbean for Rural Development Through Heritage had been published as a guide to managing the use of natural resources. Other regions had implemented similar initiatives. At the host-community level there were exemplary efforts, such as that of the Maori in New Zealand regarding whale watching and two maroon communities in Surinam which had built eco-lodges -- accommodations for tourists close to their villages. In her region, efforts had been successful in moving tourism towards becoming sustainable for culture and the environment.
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INDIRA SAXENA, of the Commonwealth Trade Union Confederation, said trade unions had already started the job of changing attitudes towards tourism to promote sustainable practices. There was a direct link between tourism and transportation, and the pollution caused by transportation should be considered. The work conditions in tourism businesses should also be examined. In India, for example, some four-star hotels had been found to have poor working conditions. A recent report revealed poor ventilation, the use of harmful cleaning products and other harmful practices. Because of those conditions, workers contracted lung diseases and women were suffering from miscarriages, fetal disorders and headaches. A number of unions in South Asia were involved in improving such conditions, as well as in training and education programmes to promote sustainable practices.
J.S. NSUBUGA-BEWAYO, Mayor of Jinja, Uganda, said that the sustainability of tourism in any destination depended upon the preservation of the unique natural and cultural features that attracted tourists to that destination in the first place. Possibly the primary barrier to sustainable tourism was an over-reliance on market mechanisms to guide tourism development and consumption decisions. The market was primarily concerned with using natural resources and cultural wealth, but too often it took that wealth for granted. The market took many things for granted -- it assumed that public safety, cleanliness, uncongested travel and many other things would be looked after by someone else.
Governments could cause social and cultural discord amongst communities due to their tourism policies, he added. Some governments favoured the conservation of resources for foreign tourists at the expense of local interests and cultures. That made conservation of natural wealth an activity that was not favoured by communities. Such alienation of communities usually led to unsustainable efforts to conserve resources. Governments must ensure that the income generated from tourist activities endowed the host community with new skills and industry. They must also ensure that all actors shared the costs of maintaining services and infrastructure.
WILFREDO ALAMGUI, Tebtebba Foundation, Third World Network, spoke for NGOs. Unsustainable tourism management damaged the environment and violated indigenous peoples and other local communities' human rights, and rights of access and ownership of land and natural resources essential to food security, self-sufficiency and cultural identity. It commercialized and marketed peoples and their heritage. Indigenous peoples and other local communities should be the prime decision-makers with regard to tourism.
Industry and other stakeholders must regulate their activities in accordance with treaties and agreements between indigenous peoples and States, as well as with international instruments including the United Nations Declaration on Human Rights and the United Nations Convention on Biological Diversity, he said. States should adopt and ratify those instruments, and industry should incorporate them into their codes of ethics. There should be
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local and regional sustainable tourism boards, involving all stakeholders. The Commission should call on tourism policy-makers and industry to implement ethical codes and guidelines developed by indigenous and local communities.
Authentic information, education and awareness-raising initiatives were needed to enable local communities to participate meaningfully in decision- making, he said. The Commission should direct the Department of Economic and Social Affairs to draft a joint initiative to improve information availability and capacity-building. According to the World Bank, 85 per cent of income from tourism remained in the hands of outside interests.
Strategies to maximize benefits for local communities could involve programmes in traditional agriculture and local recycling, he said. Tourism must safeguard the integrity of local indigenous cultures and their underlying traditional economic practices. At the same time, innovations based on traditional knowledge and customary practices must be supported, and local entrepreneurship given priority. The Commission should establish a multi- stakeholder working group, facilitated by the Department of Economic and Social Affairs, to develop a plan to ensure that indigenous peoples and other local communities retained land and water rights and access to, as well as control and management of, natural resources.
ALEXIS HATZIDAKIS (Greece) said that cultural heritage and natural environment in Greece were the basic elements of national wealth upon which tourist development was based. The main goal of Greece's tourist policy was to preserve those resources in order to achieve sustainable tourist development. In that regard, Greece had developed a National Tourist Organization project which involved all stakeholders. Its main objective was to create eco-friendly tourism infrastructure by rehabilitating and regenerating a number of remarkable traditional settlements. In that regard, it concentrated on restoring and reusing buildings for tourist accommodations and services.
To promote sustainable tourism, he said, there was a need to enhance general awareness of the visitors concerning local culture, religion, heritage, language and other factors. The main objective of developing a tourist site was to promote the positive aspects of the site while minimizing the negative impacts of tourism on local culture and the environment. The carrying capacity of a site was very important. If there was too much tourist activity, facilities were saturated, the environment was degraded and the host community was harmed. Appropriate policies were needed at every stage in developing such sites in order to avoid such problems.
CECILIA PEREZ BALLADARES, Assistant Director-General of the Panamanian Institute for Tourism, described her country's efforts to transform the concept of sustainable tourism development into a tangible and driving economic force. Panama had brought tourism, conservation and research into a mutually reinforcing relationship, and had transformed that alliance into a
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catalyst for the national economy. The most successful mechanism for protecting cultural, ecological and historical legacies was concerted effort by the Government, the private sector and the civil society. The tourism- conservation-research partnership, conceived as a public-private partnership, required mechanisms to coordinate tourism, conservation and research priorities, to be pursued with the private sector and local communities.
Panama's journey had just started, but its enthusiasm and commitment were serious, she said. It would continue to work towards proving the central role that partnership could play in driving a nation's well-being. Each country that embraced the economic potential for heritage tourism through mutually beneficial partnerships had the opportunity to harness the interests of the world's largest industry to transform conservation and scientific research into pivotal economic forces. She hoped her country's cross-sectoral partnerships could be a model for other countries' development strategies, to the benefit of global economy. The possibilities were endless.
HULY ORS (Turkey) said her country had a continually growing tourism sector with more visitors every year. Despite that, Turkey had taken a number of steps to protect its environment while accommodating more tourists. Only 14 per cent of the coastal land was used for tourism. In line with those sustainable development goals, Turkey had prepared the Southwest Coast Environmental Project, which aimed to remedy problems relating to drinking water, sewage management, water treatment and other factors related to tourism. There was also a programme aimed at achieving environmental standards along beaches and marinas. Turkey had also made efforts to encourage and reward environmentally conscious facilities.
Dialogue on Promoting Sustainable Development through Tourism
A representative of industry said that one task force should monitor the various issues that had been mentioned by the NGO representative, rather than several. An NGO representative then explained that land management, financial resources, trade and investment and economic growth were to be the themes of the Commission's session next year and, for that reason, the NGOs were proposing different groups to monitor those issues.
A representative from the trade unions discussed the importance of local controls on tourism. While unions were committed to economic development and justice, there was need for realism. The economy was increasingly regional and global. Decisions affecting the economy were increasingly made by elites far away from the local communities that were affected.
The current pace of global economic change was too rapid to continue to condone the harmful impacts of development processes, he said. Current development practices had failed to ensure living wages for workers. The Commission should adopt the core labour standards that had been referred to last year. Also, there was need to promote, through the United Nations
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Framework Convention on Climate Change, the protection of workers in developing and developed countries against the developments that the Convention would impose.
All stakeholders knew that the General Agreement on Trade in Services had been imposed on local groups by their national governments, a speaker said. The multi-stakeholder process had broken down on that issue. Concerned that this breakdown would deny local groups their rights, she stressed that such people be consulted before agreements were imposed that undermined their autonomy.
On the topic of the carrying capacity of tourist locations, a speaker for local authorities said the rapid growth of tourism often breeds other industries such as a construction industry. One problem, however, was that tourism often continued to grow beyond the capacity of the destination. Hotel companies would continue to build hotels as long as people come to stay in them. That development, however, could be detrimental to the area's environment. Tourism tended to make for a growth-based economy, and that was not sustainable. Industry was not able to self-regulate in that regard.
Echoing that comment, another representative of local authorities said that cities often had to deal with problems after a tourist business was gone. His area had to eliminate hotels that were blocking out natural landscapes and needed to rehabilitate degraded spaces. There was a need to establish an "eco-tax" which would enable authorities to rehabilitate the landscape and improve the environment.
A representative of industry said the carrying capacity of destinations varied, and not every destination had the same requirements or needs. Some countries might need tourism growth to solve their employment problems. He advocated putting tourism policy in the hands of a community group that involved a number of stakeholders. On the issue of taxes, he said the industry wanted to pay its fair share of tax, but did not want to be overtaxed.
In response, a representative of local authorities said an "eco-tax" would be implemented in order to have industry pay for resources it used. Such taxes would provide incentives and disincentives for resource use.
On the topic of voluntary initiatives, a speaker for trade unions said that such initiatives should not be used for dismantling government regulatory authority. A key factor was the area of waste disposal, especially at airports. She said the present system of waste collection was too decentralized to be effective. Waste passed through too many different hands and that left a chance for polluting the environment. There was no airport anywhere that had made provisions for waste removal -- it was done only by the individual airlines. Governments must initiate discussion on the issue to make the issue a priority.
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An NGO representative said carrying capacity could be substituted by the use of limits for acceptable change. The first road through any area made the most impact. If there were limits on acceptable change, such as how wide that road could be, then such criteria could be adhered to, with a view to limiting environmental degradation. Development had to be determined at the local level, and at the appropriate scale for each community, she stressed. For this to happen, local communities needed solid information on the impact of tourism. The industry was developing too fast, and should perhaps be slowed down.
In response, an industry representative agreed on the need to concentrate on local forums and partnerships. Decisions on capacity must be taken at the local level, since that was where impact was felt.
SIMON UPTON (New Zealand), Commission Chairman, said no one disagreed with the importance of local decision-making. For local groups and people to make sound decisions, however, they required valid information.
When the discussion moved to the issue of cultural tourism, a local governmental official emphasized the role of local authorities in preserving culture. In his country of Brazil, there had been success in turning local traditions into a product that attracted tourists and created jobs, while ensuring preservation of local culture.
From the trade unions, a representative appealed to multicultural sectors to bring out cultural values for the tourist. Certain countries tried "to set up small Germanies and Englands", she said, rather than emphasizing their own culture. Local communities had an important role to play in proposing a richer offering. Tourists must be instructed on the benefits of local arts and other cultural aspects. That would foster local participation, create employment and mean that tourists were able to better know the place they were visiting.
A local government representative drew attention to the fact that rapid growth in tourism meant that people were imported to serve the growing industry, with dramatic consequences for a community's demography. The industry should train and hire local workers before bringing in persons from other areas.
A country representative from China said that as the Commission was discussing environmental protection, a sovereign State was being bombarded. The bombing of the Federal Republic of Yugoslavia included bombing of chemical fertilizer plants and oil refineries, which was leading to air pollution and toxic spills into the "blue Danube", which was now no longer blue. The local people were now exposed to terrible health consequences. He hoped the Commission would address those "tourists", who must not bombard such civilian targets.
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A speaker from the trade unions said music was essential to sustainable tourism. Music entertained the visitor, and united the whole world. The trade unions suggested that networks for musicians and artists be supported to educate tourists and all people on sustainable development. The artistic community could make an extraordinary contribution. "We want to bring soul to Agenda 21. The musical scores for Agenda 21 have only begun to be written", he said. An industry representative supported that initiative.
An NGO speaker stressed the need for the tourism industry to be aware of the spirituality of indigenous peoples. He opposed the use of symbols of genocide to promote tourism, such as using the remains of the Inca Indians or others to attract visitors. Authorities often use natural formations as tourist sites, ignoring their spiritual importance to indigenous peoples. Governments should consult with those people before initiating tourism projects. Another NGO speaker said the tourism industry was in some cases marketing indigenous peoples and cultures and selling that culture as a product with little or no compensation going to the people. Indigenous peoples would prefer to set up micro-enterprises to serve visitors, instead of big hotel chains and companies moving into their territories. Local authorities should work with the local communities more in that regard.
Also on indigenous peoples, an industry speaker said a major concern was the degree of accessibility indigenous peoples had to research and information so they could practice sustainable tourism. An NGO representative said there had been an increase in the trade of cultural goods and goods related to heritage -- such as textiles and art works. The loss of such cultural goods was detrimental to countries and communities. International laws protecting goods could be established.
On the topic of education, an NGO representative said that local communities had the right to say no to tourism projects. To do that, indigenous people must be provided with the necessary information to make informed decisions on the tourism projects. That information must be provided in the local language. Communities must be consulted more in development projects -- especially in regard to eco-tourism projects which had not benefited communities as much as planned.
For trade unions, one speaker said that education efforts should not be top down -- the community and trade unions should be included in the entire process. An industry speaker said that tourism education was also important in providing young people with career opportunities rather than resorting to prostitution. An important condition for sustainable tourism was the creation of sustainable jobs and that required education. There was a prevalence of part-time workers in the tourism industry, as well as those that were dependent on tips for income. That did not lead to regular employment.
Worker health was a serious problem especially in the hotel sector, said a representative of trade unions. In many hotels, women suffered from
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ailments related to the use of harmful cleaning chemicals. Those chemicals contaminated not only the workers, but the environment as well. Industry must take steps to reduce the use of toxic substances, many of which could be substituted for eco-friendly cleaners.
Summary Comments
A speaker for industry said there was a need for an agreed overall policy framework that implemented Agenda 21 on a regional, national and international basis. Industry also supported the following points: that tourism programmes and projects should reflect market and non-market elements; that public-private partnerships should be used in all tourism efforts; and that consumer awareness programmes should be instituted. The Commission should support areas where joint programmes could be created, such as the music initiative and the Dodo initiative. Industry would like to see annual reviews and reporting on all those efforts.
There should be action on proposals, such as the music initiative, to promote a positive response to Agenda 21, said a representative of trade unions. There was need for effective trade union participation in efforts to support Agenda 21 in the workplace and in the community. That participation should include the formation of projects -- too often unions were in a position of implementing someone else's ideas. It was also important that the recommendations and the momentum of the current discussions not be allowed to fade between the Commission's sessions.
A representative of local authorities said there should be support for initiatives that encouraged accountability in preparing tourism projects. The maintenance and upkeep of tourism enterprises must be supported by the tourist industry. Industry should make tourism financially attractive for the local community by, among other things, hiring local workers. There was need for a steady tourism economy to prevent booms and busts that destabilized the local economy. There should also be multi-stakeholder negotiations on growth limits and tourist capacity. Local eco-taxes should be considered for providing revenues for rehabilitating the environment and natural resources which were depleted by tourism businesses.
A speaker for NGOs said that sustainable tourism policies must take into account the needs of indigenous communities at all levels of planning and development process. Industry and local authorities should support the education and training of local communities to improve their capacity to benefit tourism. There should also be efforts to asses ways of maximizing the benefits of tourism for local economies. Governments should develop a plan to improve indigenous peoples' access to natural resources in tourist areas. The international community should develop an international system for protecting the rights of indigenous peoples comprehensive land and natural resource rights.
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