Developing aboriginal tourism — opportunities and threats

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Tourism and world peace

A final policy issue which is considered here relates to the opportunity for increasing knowledge and understanding between peoples of the world through the growth of tourism. World- wide tourism will mean greater per- sonal contact and understanding by foreign nationals of the social, political, and economic habits and customs of the destinations visited. While certainly there are many sites where tourism does have a negative impact on an area, this is not normally the case. A carefully planned, well-organized tourist destination can benefit local residents through exposure to a varie- ty of ideas, people, languages and other cultural traits. It can add to the richness of residents’ experiences by stimulating an interest in the area’s heritage through restoration and preservation of historical sites. Organized cultural tourism development can provide opportunities for local people to learn more about themselves, thus increasing feelings of pride in their culture and a heightened perception of their own self-worth.

Tourism can also contribute to cultural revival. There are numerous examples where the demand by tour- ists for local arts and crafts has heightened the interest and maintained the skills of local artisans and craftsmen by providing an audience and market for their art. This preservation, whether it be in local artifacts, historic sites or religious rites, forms the heritage of an area or country. In this light, the countries of the world, working through an organization like the World Tourism Organization, can search out venues and circumstances to advocate travel and tourism policies that promote goodwill, peace and mutual understanding.

There are many other areas of tourism policy, including rural tourism development, which need attention as international tourism grows. The above issues suggest an agenda for tourism on the economic, foreign rela- tions and social fabric of this nation. It is up to the public sector, not only at the Federal, but at the state and local levels of government to provide the leadership needed in order that future tourism growth fosters positive inter-

national trade policy in tourism. If such action is forthcoming, charting a course for world tourism at the millen- nium will help us reach the policy goal

set forth at the beginning of this book-

let:

the highest purpose of tourism policy is

to integrate the economic, political, cultu-

ral, intellectual and environmental benefits

of tourism cohesively with people, destina-

tions and countries in order to improve the

global quality of life and provide a founda-

tion for peace and prosperity.

David Edgell Acting Under Secretary

US Department of Commerce Washington, DC 20230

USA

Notes ‘For a summary of key tourism policy issues, see ‘Interim Report: Global Assessment of Tourism Policy’, Tourism Policy Forum, international Institute of Tourism Studies, The George Washington University, Washingon, DC, March 1991. “Survey of Travel and Tourism’, The Eco- nomist, 23 March 1991, p 16. 3/hid, p 15.

Developing Aboriginal tourism - opportunities and threats The following report is a slightly edited version of testimony presented to the Canadian Royal Commission on Aboriginal Peoples in June 7993 by Barry Parker, Chairperson of the Canadian National Aboriginal Tourism Association (CNATA), Executive Director of the First Nations Tourism Association (FNTA) of British Columbia and a member of the Okanagan Nation. As interest in taking holidays among indigenous peoples grows, Mr Parker presents the views of one such group on the benefits that tourism can bring to them, the pitfalls to be avoided and the sorts of assistance they will need. A key requirement for success will be the placing of responsibility for tourism operations squarely within the hands of properly trained native people themselves.

Aboriginal tourism has been defined vices it has been determined that these as any tourism product or service can be considered as part of the Abor- which is owned and operated by Abor- iginal tourism industry. However, iginal people. level of service and support for these

In response to discussions on joint businesses will vary as will the types of ventures and non-Aboriginal owned memberships in Aboriginal tourism culturally oriented products or ser- organizations. A factor in determining

the level of support and membership will be the benefit these businesses provide to Aboriginal people.

Tourism Canada has identified 1368 Aboriginal tourism businesses in Canada. These businesses can be found in all provinces and territories.

All tourism products and services are listed under the following categor- ies: Accommodation, Food and Be- verage, Adventure Tourism and Re- creation, Transportation, Travel Trade, Events and Conferences, Attractions and Tourism Services.

Facts and figures

Tourism Canada estimates that there are 60 000 tourism-related businesses in Canada. This being the case, the 1368 Aboriginal tourism businesses make up 2% of the Canadian tourism industry.

It has been estimated that the total

TOURISM MANAGEMENT October 1993

tourism revenue generated in Canada in 1991 was approximately C$27 bil- lion. Assuming that the revenue generated by Aboriginal tourism would be comparable to our percen- tage of businesses it would mean a contribution of $540 million to the Canadian economy. We should cau- tion that this amount is thought to be high and that perhaps our contribution in 1991 would be closer to $270 million.

Tourism Canada’s Tourism Related Employment in Canada report, using 1991 census figures, shows that of the 294 400 Aboriginal people employed in Canada that year 48 600 (16.5%) were employed in the tourism industry. The employment report only high- lighted 16 occupations and did not include statistics from the Yukon or Northwest Territories. The majority of the Aboriginal work-force were employed in low-skill-level occupations. This report reflects that most Abor- iginal people employed in the tourism industry are working for non- Aboriginal tourism businesses.

As of 1990 the Indian and Northern Affairs Canada (INAC) had spent $350 million on Aboriginal tourism business development. Of this, $180 million had gone into capital costs and $170 million was spent on feasibility studies and business plans. We are unsure of the total amount of monies spent on tourism by other federal and provincial ministries but we expect that it would at least equal the INAC investment.

Aboriginal views of the tourism industry

Tourism as a whole is approached by the Aboriginal community with cau- tious optimism. Tourism is seen as an industry with real growth opportunities; an industry where we can realize our full market potential. However, it is clear that danger lurks in the tourism industry if not approached with an understanding of the damage it can cause aboriginal communities, their lands and their culture.

Those who have been successful in the tourism industry have taken the time to do proper planning. The need to identify their carrying capacity and

to develop a tourism development strategy is critical for Aboriginal people to understand.

Concern has been raised about tourism being used to exploit Aboriginal cultures. Additionally, there have been questions of whether or not we should extend a welcoming hand to the travelling public when there are political issues yet to be settled and serious social problems.

On the positive side those Aborigin- al people who have had success in the industry cite numerous benefits of being involved. Some of the benefits which have been noted are:

It is an industry where both women and men can be successful owners and operators. Employment opportunities exist for all age-groups. Employment opportunities exist for both the low-skilled and high- skilled Aboriginal work-force. It provides a positive working environment and lifestyle. It provides an opportunity to reflect our pride in our cultures. Tourism can be developed on a small or large scale. Tourism can be a strong compo- nent of the Aboriginal economy. Tourism is an industry which re- spects our environment. Through tourism development cultural education is possible.

While there are other benefits which have been enjoyed by being involved in the tourism industry it is important to note that tourism, in real terms, is business. Those who have been successful in the tourism industry realize that the bottom line for their businesses is to satisfy the customer. Without the satisfied customer there is no profit. The main challenge for Aboriginal people who enter the industry is to be culturally oriented ‘business’ people.

Four touchstones of the Royal Commission

We agree with the Royal Commission in their approach to focusing the dia- logue by using four touchstones. The new relationship, self-determination, self-reliance and healing are clearly


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the four most important issues which require comment. We choose to view these touchstones as the four direc- tions of a circle. All are part of the whole and are connected in many ways. This interdependence reflects the equality of issues and concerns.

The final recommendations which the Royal Commission develops must also reflect equality in the solutions they set forth. However, we are not sure that the Royal Commission should necessarily be charged with the responsibility of turning our solutions to our problems into reality. Those of us who are working in the Aboriginal tourism industry must continue to do our job.

We realize that to accomplish the goals we identify we must work and work hard. We will not abdicate our responsibilities and we certainly do not want to burden the Royal Com- mission with the tasks which are really ours to do. What we do ask the Royal Commission to do for us is to keep us on track and in step with the common solutions to common problems. We believe that tourism has a part to play in the common solutions and we wel- come advice on how we can help.

The new relationship

Tourism could possibly be the lead industry in bridging the gaps between Aboriginal and non-Aboriginal communities. By encouraging people to visit our products and use our services we are creating a process whereby Aboriginal and non-Aboriginal people come together.

Our culturally oriented products especially provide opportunities for Aboriginal people to share with digni- ty and respect those wonderful things they choose to share. It is this ability to share the truth about our customs, traditions and history which will open the minds of the non-educated public. Additionally, it provides a positive setting for passing on our knowledge to our children. Keep in mind that we believe that Aboriginal people themselves would ensure that no falsehoods would be promoted.

It is a fact that Aboriginal tourism must work with the balance of the tourism industry. This again provides avenues where new friendships can be

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developed and used to strengthen our business opportunities. As equal part- ners in the tourism industry we can ensure that Aboriginal people and cultures are not exploited by the other tourism sectors. The key factor in this business relationship is that there is tremendous market demand for Abor- iginal products both domestically and internationally. The whole tourism industry knows that to capture this market it is the Aboriginal people who will decide on how much and what kind of tourism they want.

Through our marketing and promotion initiatives we will be selling our products to a huge market; we also have the ability to reflect to the world exactly who we are. We have the chance to educate the people who choose to think that we have not evolved and that we are frozen in the 1800s that we are people of the 90s. It will be great to let people know that while we hold on to our cultures we are also equal to all peoples of the world in terms of philosophy, tradi- tional medicines, the arts, literature, etc.

Through interaction with the travelling public we can teach others how best to coexist with Mother Nature. Above all else it is our relationship with the environment which must be shared. Many, many people in the developed countries are now seeking ways to re-establish their links with the land and we who have maintained our relationship to the land must share our knowledge.

It is by bringing people together that they learn about each other and it is through the utilization of this ability to bring people together that the tourism industry survives.

Self-determination

The question of jurisdiction is a common one in the Aboriginal tourism industry. At present the provincial and territorial governments claim all jurisdiction over tourism. While the federal government has retained cer- tain responsibilities it primarily works with the provinces and territories as a support mechanism.

For the most part governments do not recognize Aboriginal tourism as a distinct part of the tourism industry.

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Aboriginal tourism products and services which do not reflect Aboriginal culture are slotted in with other similar products. Cultural products are considered attractions.

The fact that Aboriginal peoples and their lands are considered the jurisdiction of the federal government causes numerous problems for Abor- iginal tourism operators when they try to work with provincial governments.

Our vision with respect to self- determination is that when the right to self-government is recognized government-to-government tourism agreements will be developed.

Self-sufficiency

In the development of sustainable economies it is our belief that Aboriginal tourism must be included at the out- set. Too many times in the past has tourism been looked to as the saviour of local economies which were pre- viously based on non-renewable resources. If done right, tourism can work with other industry sectors to ensure that tourism development potential is not destroyed by the ex- traction of resources. For this to hap- pen we promote proper integrated resource management practices. Tour- ism as a land use industry must be included in land use discussions and in fact should be a leader with respect to environmental protection. As leaders of the Integrated Resource Manage- ment Committee, The First Nations Tourism Association of British Col- umbia (FNTA) played a key role in the development of a resource management discussion paper which was adopted as a working document by the First Nations Summit in BC.

The development of sustainable tourism depends on a sustainable market. The lack of Aboriginal tourism research makes it difficult to determine product and market matches. The question we ask ourselves is: who is or could be buying our products?

As critical as market research, the development of marketing strategies is fundamental for success in the tourism industry. For this to be done we must have detailed knowledge of the products we are offering, including the level of service the businesses provide. We then review the market research

to see who might buy such products. We then determine the best marketing and promotion plans to get our product information to these markets.

The last two paragraphs may seem small and inconsequential but they are the most important factors in Abor- iginal tourism. Some people actually believe that if they start a tourism business the customers will automati- cally show up: nothing is further from the truth. In fact, without a marketing plan it is extremely doubtful that a financial institution would lend the money to get started.

Maintaining a competitive edge in tourism is difficult if you do not evalu- ate, on a regular basis, customer needs and service expectation. Additionally, an analysis of the competition is cru- cial to ensure proper pricing and product packaging. What is important to remember is that we are not only competing with other tourism businesses in Canada but we also com- pete in the world market.

Self-sufficiency ultimately depends on the human factor. We must continue to develop our human resources. There is no point in the development of Aboriginal tourism businesses if we cannot employ our own people. However, the full responsibility of developing this work-force cannot be given to the Aboriginal tourism industry. This being the case the industry must work with the education community.

Healing

The tourism industry is one where people play the key role. The industry strives at all times to create a positive work environment and works with its employees on a regular basis to keep their spirits up and, as far as possible, to keep them happy.

Nothing can destroy a tourism business faster than an employee who mistreats the customers by giving poor or rude service. Recognizing this, employers are always quick to train or provide support for employees who are having problems. Contrary to popular belief it is easier to help develop existing employees than it is to train new staff. It is not surprising that many individuals who had low self- esteem or poor habits experience a


positive change when working in the tourism industry.

Another area in which Aboriginal tourism plays a role in healing is the respect it has for culture, especially in the area of cultural tourism where the sharing of culture is based on truth. The pride employees have in their cultures is heart warming. The fact that businesses are developed on the beauty and richness of culture reflects the commitment of the employers to ensure cultural integrity and respect. It is an absolutely tremendous honour when people travel for thousands of miles just to visit us. In those communities who have successfully developed cultural tourism products the community members find new belief in themselves and this is reflected in the way they carry themselves and the way they treat others. It is nice to be appreciated.

Various by-products developed to support tourism can be used for other purposes in the Aboriginal community. Cultural information for cultural products can be used to develop a curriculum for the school system. Cer- tain facilities can be used by the community as part of education or social activities.

When education is completed and healing is taking place people need opportunities to be all that they can be. Perhaps the best thing that tourism can provide to an Aboriginal community is employment opportunities in an industry which is sensitive to the peoples’ needs.

The harriers to change

A great deal of work has been done by both CNATA and FNTA in determining the support requirements for Aboriginal tourism development. In this regard both organizations have consulted Aboriginal people and identified common problems and goals and are now developing solutions and strategies.

The area in which we see the Royal Commission assisting Aboriginal tourism development is in the clarification of our position in the tourism industry. As mentioned earlier there is tremendous demand for Aboriginal tourism products and services. At the

same time as Aboriginal tourism associations are developing the infrastruc- ture to meet this market demand, non-Aboriginal tourism associations and government ministries are surging forward to provide service in these areas.

We are not suggesting that we do not want to work with these ministries or associations; it is just that they seem to be experiencing problems in knowing how to work with us. It is nice that they are trying to develop various initiatives to support Abor- iginal tourism as they see it but who are they doing it for? Who are they accountable to? What consultation have they had with Aboriginal communities? Is it our job to help them?

Aboriginal tourism has become such a hot topic that there is a growing demand for work to be done on Abor- iginal tourism issues. We feel that we should be doing this work or, in cases where we do not have the resources, that we should work in an advisory capacity. However, we are always underfunded and this funding is always year to year without any guaran- tees; this lack of guaranteed support is reflected in the level of service we can provide and limits our participation in a number of initiatives.

The truly bitter insult is when non- Aboriginal tourism associations or government ministries undertake Aboriginal tourism projects and they call us to provide them with the information they need. Why could we not be paid to do the work we end up doing anyway?

If the barriers to our full and positive participation in the tourism industry all reflect a lack of jurisdiction then it is the clarification of our relationship to other tourism associations and government ministries that will remove these barriers.

The solutions

The solutions for overcoming the barriers we face in the Aboriginal tourism industry are not easy to develop and will require time, resources and a commitment from all parties.

As mentioned in the Self-Reliance section of the presentation we see that when self-government is recognized

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there will be government-to- government tourism agreements. Perhaps this could be viewed as the ultimate solution.

What we have to determine is what we can do in the interim that can empower and enable us to do the work we need to do. Additionally, we must ensure that the work that we do can eventually lead to government-to- government tourism agreements. Finally, we must dedicate ourselves to the task of developing a successful and sustainable Aboriginal tourism industry.

Work must be done with all Abor- iginal people in Canada - including status and non-status, on and off re- serve, Metis and Inuit - to ensure that they understand their opportunities in the tourism industry.

We must work to guarantee that Aboriginal tourism is represented in every province and territory. In this regard significant work must be done in those areas which do not have Aboriginal tourism associations.

There must be memorandums of understandings developed between Aboriginal and non-Aboriginal tourism associations clarifying roles and responsibilities.

We must encourage the development of Federal, Provincial and Abor- iginal tourism agreements in each province. Where existing Federal and Provincial or Federal and Territorial tourism agreements presently exist we should seek subsidiary agreements to facilitate Aboriginal tourism interests.

Finally, there must be a Federal/ Aboriginal tourism agreement developed to facilitate work done at the national level.

Summary

It is our hope that when Aboriginal people are informed about what is happening in the Aboriginal tourism industry they are encouraged by the progress we have made to date. In this regard both CNATA and FNTA maintain an open door policy and would be happy to speak to anyone interested in any aspect of the tourism industry.

More importantly, we wish to contribute as much as we can to the

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development of the new relationship similar problems and that by working between the Aboriginal and non- together we can make a better world Aboriginal people in Canada. We see for our children. the new relationship as one where we Barry Parker

recognize that, for the most part, we CNA TA have the same goals and experience Kelowna, SC, Canada V72 3J2

Tourism and managing the coast: a review of recent meetings At the beginning of June 1993, the Holbeck Hotel in Scarborough, UK collapsed seawards amidst considerable media coverage of the landslide and the problems of coastal erosion threatening the east coast of England. It was a very public reminder of the problems of coastal management which face many British resorts. That the problem is not simply one of erosion is demonstrated by the flurry of symposia and conferences in the few months since the House of Commons Select Committee reported on coastal zone planning and protection, and a European Community Resolution of February 1992 proposed that there should be greater emphasis on integrated management of the coastal zone.

The late autumn of 1992 saw two conferences held in Winchester. The first, run by Hampshire County Coun- cil Planning Department, focused on ‘Coastal planning and management’ and used a series of case studies and workshops to identify the diversity of interests which need to be considered at the coast. Pollution, inappropriate development, coast protection against erosion and sea defence against flood- ing, conservation and recreational pressures were recurrent themes. Not, please note, tourism! The second meeting was held under the auspices of Hampshire County Council and Norwich Union UK Coastwatch with a more localized focus on the Solent and the steps needed to bring together the many interests. The main emphasis was on water and beach quality and the ways in which these can be improved or at least maintained. In the last paper of the day, the author made the point that much of the drive towards improved coastal environments was fuelled by the need to serve the interests of the tourist economy. Yet tourism was almost perceived as an afterthought! Frequently the reaction to water pollution, unsightly development or overcrowded roads and coastal waters also came as an afterthought, The subsequent discussion

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revealed a conflict of public perception about water and beach quality. Despite the scientific monitoring which showed that waters met quality standards, resorts would still be faced with visitors who were repulsed by poor visual quality.

March 1993 saw four separate conferences, including two on the same day! The Tidy Britain Group held its Seaside Awards seminar on the same day as the Natural Environment Re- search Council looked ‘Towards a better coast: a strategic approach to coastal zone management’. As might be expected the emphasis of the first was mainly on beach management and safety, whereas the latter concen- trated more on scientific research to support the managers of the more sensitive parts of the coastline in terms of their ecology and the risks of sea- level rise and coastal retreat. This was the first conference to emphasize the growing acceptance of managed retreat as a means of dealing with the burgeoning costs and probable failures of coastal defences. We are going to have to get used to areas of coastal land which have been reclaimed and defended for decades being allowed to return to the sea. On beaches, discussion of the issue of safety not only in terms of health but also against

drowning brought out the practical suggestion that much of our beach management could be integrated better if we consider the activities rather than the facilities.

The following week marked a defi- nite landmark (or seamark), for the Ordnance Survey and the Hydrog- raphic Office jointly launched a pilot Coastal Zone Map. For the first time in the two hundred years since the foundation of the Ordnance Survey these two world-famous mapping organizations have cooperated to pro- duce a map which crosses the divide between land and sea. Of particular significance is its focus on one of the most intensively used areas of coastal waters for recreation and tourism: the Solent. We have excellent maps for major tourist areas of the British countryside, but this map is the first attempt to do the same for the coastal zone. As yet no final decision has been made about wider development of the map, but it would serve well many coastal areas, especially the estuaries which contain so much water-based leisure, if the series were to be widened.

The Heritage Coast Forum held its annual conference in Eastbourne on the theme ‘Integrating tourism, recreation and coastal conservation’ and, as would be expected, focused mainly on the undeveloped and rural coasts. Uniquely amongst all these meetings, it widened its view to consider European issues. A series of workshops focused specifically on ways in which tourism and recreation can be integrated with conservation to bring about ‘mutual benefits and long- term sustainability’. One aim was to strengthen links between ‘coastal conservation managers, planners, and recreational and tourism bodies/ interests’. As so often happens, pre- cious few of the latter were represented other than through the local planning departments.

Finally, in May, Eurocoast UK held a conference on ‘Integrating solutions to coastal problems’ and the Royal Town Planning Institute, as part of its regular training seminars, focused on ‘Coastal tourism’. Despite their diffe- rent objectives, both conferences emphasized similar themes. Coastal


Developing aboriginal tourism — opportunities and threats

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