indicators of sustainable development for tourism destinations a guide book by unwto

8/9/2019 Indicators of Sustainable Development for Tourism Destinations a Guide Book by UNWTO

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Indicators of Sustainable Development

for Tourism Destinations

A Guidebook


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Copyright © 2004 Wor ld Tour ism Organization

Calle Capitán Haya, 42

28020 Madrid, Spain

Ind icators of Sustainable Developm ent for Tourism D estinations: A Gu ideboo k

ISBN 92-844-0726-5

Publi shed and prin ted by the World Touri sm O rganization, Madrid , SpainFirst printing in 2004

All rights reserved

The designations employed and the presentation of material in this publication does not imply the

expression of any opinions whatsoever on the part of t he Secretariat of the World Tourism Organization

concerning the legal status of any country, territory, city or area, or of its authorities or concerning the

delimitation of its frontiers or boundaries.

World Touri sm O rganization

Calle Capitán Haya, 42

28020 Madrid, Spain

Tel.: (+34) 915 678 100

Fax: (+34) 915 713 733

Web site: www.world-tourism.org

Email: omt@wor ld-tourism.org

© This publ ication may be reproduced for such purposes as cri ticism, comment, news report ing, teaching,

scholarships, or research, or for use by member country governments, in which the use is for non-

commercial purposes – is freely authorized, with due credit to the WTO source. The WTO would

appreciate receiving a copy of any pub lication that uses thi s pub lication in these circumstances as a source.

No use of this publ ication may be made for resale or any other commercial purpose whatsoever without

prio r permission in writi ng from the WTO. For applications see www.world-tour ism.org/pub/rights.htm.

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© 2004 World Tourism Organization - ISBN 92-844-0726-5

Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

How to Use this Guidebook . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Part 1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

1.1 Indicators of Sustainable D evelopm ent for Tourism . . . . . . . . . . . . . . . . . . . . . 8

1.2 W hy U se Indicators?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

1.2.1 Indicators at D ifferent Levels . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

1.2.2 Types of Indicators. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

1.2.3 M easurem ent and Expression of Indicators . . . . . . . . . . . . . . . . . . . . . 12

1.2.4 Indicators and Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

1.2.5 Indicators as a C atalyst. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

1.3 Progress in Indicators D evelopm ent and U se . . . . . . . . . . . . . . . . . . . . . . . . . 16

1.3.1 G row ing Indicators Initiatives W orldw ide . . . . . . . . . . . . . . . . . . . . . . . 161.3.2 Advances in Indicators M ethodologies. . . . . . . . . . . . . . . . . . . . . . . . . 17

1.3.3 Indicators Initiatives of O ther Sectors. . . . . . . . . . . . . . . . . . . . . . . . . . 18

1.3.4 Indicators and Perform ance M easurem ent. . . . . . . . . . . . . . . . . . . . . . 19

1.4 Expected U se and U sers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

Part 2 Indicator Development Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

2.1 Key Steps to Indicators D evelopm ent and U se . . . . . . . . . . . . . . . . . . . . . . . . 22

Initial Phase: R esearch and O rganization . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

Step 1 D efinition/D elineation of the D estination . . . . . . . . . . . . . . . . . . . . . . 24

Step 2 U se of Participatory P rocesses.. . . . . . . . . . . . . . . . . . . . . . . . . . . . 26Step 3 Identification of Tourism Assets and R isks; Situation Analysis. . . . . . 32

Step 4 Long-term Vision for a D estination . . . . . . . . . . . . . . . . . . . . . . . . . . 35

Indicator Developm ent Phase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

Step 5 Selection of Priority Issues and Policy Q uestions . . . . . . . . . . . . . . . 35

Step 6 Identification of D esired Indicators . . . . . . . . . . . . . . . . . . . . . . . . . . 37

Step 7 Inventory of D ata Sources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

Step 8 Selection Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

Im plem entation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

Step 9 Evaluation of Feasibility/Im plem entation P rocedures. . . . . . . . . . . . . 43

Step 10 D ata C ollection and Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

Step 11 Accountability and C om m unication . . . . . . . . . . . . . . . . . . . . . . . . . 50Step 12 M onitoring and Evaluation of Indicators Application . . . . . . . . . . . . . 52

2.2 U se of O ther Sections of the G uidebook w ithin this Process . . . . . . . . . . . . . 54

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Part 3 Sustainablility Issues and Indicators in Tourism . . . . . . . . . . . . . . . . . . . 55

The Presentation of the Issues and Their Indicators . . . . . . . . . . . . . . . . . . . . . . . . 55

3.1 W ellbeing of H ost C om m unities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 563.1.1 Local Satisfaction W ith Tourism B aseline Issue. . . . . . . . . . . . . . . 56

Attitudes, Dissatisfaction, Commun ity Reaction

3.1.2 Effects of Tourism on C om m unities B aseline Issue . . . . . . . . . . . . 57

Community Attitudes, Soc ial Benefits, Changes in Lifestyles, Housing, Demographics

3.1.3 Access by Local R esidents to Key Assets . . . . . . . . . . . . . . . . . . . . . . 65

Access to Important Sites, Economic Barriers, Satisfaction with Access Levels

3.1.4 G ender Equity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68

Family Wellbeing, Equal Opportunities in Employment, Traditional Gender Roles,

Access to Land and Credit

3.1.5 Sex Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71Child Sex Tourism, Education, Prevention Strategies, Con trol Strategies

3.2 Sustaining C ultural Assets. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 76

3.2.1 C onserving B uilt H eritage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 76

Cultural Sites, Monument s, Damage, Maintenance, Designation, Preservation

3.3 C om m unity P articipation in Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83

3.3.1 C om m unity Involvem ent and Aw areness . . . . . . . . . . . . . . . . . . . . . . . 83

Information, Empowerment, Participation, Community Action

3.4 Tourist Satisfaction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86

3.4.1 Sustaining Tourist Satisfaction B aseline Issue. . . . . . . . . . . . . . . . 86Expect ations, Complaints, Problems, Perceptions

3.4.2 Accessibility. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

Mob ility, Older Tourists, Persons with Disabilities

3.5 H ealth and Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94

3.5.1 H ealth . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94

Public Health, Community Health, Food Safety, Worker Health and Safety

3.5.2 C oping w ith Epidem ics and International Transm ission of D isease . . . 101

Facilitation, Cont ingency Planning, Impac ts on Tourism

3.5.3 Tourist Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 104

Risk, Safety, Civil Strife, Terrorism, Natu ral Disasters, Impacts, Management Response,Cont ingency Planning, Facilitation

3.5.4 Local Public Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109

Crime, Risk, Harassment, Public Security, Tourist Anxiety

3.6 C apturing Econom ic B enefits from Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . 111

3.6.1 Tourism Seasonality B aseline Issue . . . . . . . . . . . . . . . . . . . . . . . 111Occupancy, Peak Season, Shoulder Season, Infrastructure, Produc t Diversity,

Employment

3.6.2 Leakages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117

Imported Goods, Foreign Exchange, Internal Leakage, External Leakage,

Invisible Leakage

3.6.3 Em ploym ent. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119

Training, Quality, Skills, Turnover, Seasonality, Pay Levels

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3.6.4 Tourism as a C ontributor to N ature C onservation . . . . . . . . . . . . . . . . 123

Financing for Conservation, Local Economic Alternatives, Constituency Bu ilding,

Tourist Participation in Conservation

3.6.5 C om m unity and D estination Econom ic B enefits B aseline Issue . . 128Captu ring Benefits, Tourism Revenues, Tourism Contribution to the Local Economy,

Business Investment , Community Investment, Taxes, Satellite Accoun t

3.6.6 Tourism and Poverty Alleviation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135

Equity, Micro Enterprises, Emp loyment and Income Oppo rtunities, SMEs

3.6.7 C om petitiveness of Tourism B usinesses . . . . . . . . . . . . . . . . . . . . . . . 143

Price and Value, Quality, Differentiation, Specialization, Vitality,

Business Cooperation, Long- term Profitability

3.7 Protection of Valuable N atural Assets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 147

3.7.1 Protecting C ritical Ecosystem s . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 147

Fragile Sites, Endangered Species

3.7.2 Sea W ater Q uality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149

Contam ination, Percept ion of Water Quality

3.8 M anaging Scarce N atural R esources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 152

3.8.1 Energy M anagem ent B aseline Issue. . . . . . . . . . . . . . . . . . . . . . . 152Energy Saving, Efficiency, Renewables

3.8.2 C lim ate C hange and Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155

Mitigation, Adap tation, Extreme Climatic Events, Risks, Impacts on

Destinations, Greenhouse Gas Emissions, Transport, Energy Use

3.8.3 W ater Availability and C onservation B aseline Issue. . . . . . . . . . . . 165Water Supp ly, Water Pricing, Recyc ling, Sho rtages

3.8.4 D rinking W ater Q uality B aseline Issue . . . . . . . . . . . . . . . . . . . . . 169Purity of Supply, Con tamination Impac t on Tourist Health and Destination Image

3.9 Lim iting Im pacts of Tourism Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 171

3.9.1 Sew age Treatm ent B aseline Issue . . . . . . . . . . . . . . . . . . . . . . . . 171Wastewater Management , Extent of System, Effectiveness, Reducing Contam ination

3.9.2 Solid W aste M anagem ent B aseline Issue . . . . . . . . . . . . . . . . . . . 173Garbage, Reduc tion, Reuse, Recycling, Deposit, Collection, Hazardous Sub stances

3.9.3 Air Pollution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 180

Air Quality, Health, Pollution from Tourism, Perception by Tourists

3.9.4 C ontrolling N oise Levels. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 183

Measuring No ise Levels, Perception of Noise

3.9.5 M anaging Visual Im pacts of Tourism Facilities and Infrastrucure . . . . . 185

Siting, Construc tion, Design, Landscaping

3.10 C ontrolling Tourist Activities and Levels B aseline Issue . . . . . . . . . . . . . . 192

3.10.1 C ontrolling U se Intensity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 192

Stress on Sites and Systems, Tourist Numbers, Crowd ing

3.10.2 M anaging Events . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 196

Sport Events, Fairs, Festivities, Crowd Control

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4.16 Them e Parks. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 293

4.17 W ater Parks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 294

4.18 C ruise Ships and Their Destinations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 297

Part 5 Indicators Applications: Uses in Tourism Planning and Management . 303

5.1 Indicators and Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 303

5.2 U sing Indicators to Strategically P lan for Tourism . . . . . . . . . . . . . . . . . . . . . . 305

5.2.1 U sing Indicators to M easure Plan Progress . . . . . . . . . . . . . . . . . . . . . 307

5.3 Indicators and R egulation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 308

Legislation, Monitoring Compliance

5.4 C arrying C apacity and Lim its to Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 309

Sensitivity, Limits of Acceptable Change, Thresholds

5.5 Public R eporting and Accountability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 312

5.5.1 C onsiderations R egarding from and C ontent of Inform ation P rovided . 313

5.5.2 M easuring S uccess and/or R esults of Indicators Applications . . . . . . . 316

Reach, Penetration, Action

5.6 Indicators and C ertification/Standards Program m es . . . . . . . . . . . . . . . . . . . 318

5.6.1 C ertification C riteria . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 318

5.6.2 Validation of Indicators for C ertification Program m es . . . . . . . . . . . . . . 321

5.7 Perform ance M easurem ent and B enchm arking . . . . . . . . . . . . . . . . . . . . . . . 322

Part 6 Case Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 327

6.1 AC C O R H otels Environm ental Sustainability Indicators . . . . . . . . . . . . . . . . . . 327

Hotels, Analysis, Reporting, Management Indicators, Private Secto r

6.2 Albufera de Valencia (Spain): M easuring C arrying C apacity in a Fragile

Ecosystem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 330

Carrying Capacity, Model, Multivariate Analysis; Wetlands, Data Integration,

Sensitive Natural Areas, Ecotourism,

6.3 Antarctica: Sustainable Tourism Indicators . . . . . . . . . . . . . . . . . . . . . . . . . . . 338

Hotels, Analysis, Reporting, Management Indicators, Private Secto r

6.4 Arches N ational Park (U SA): Indicators and Standards of Q uality forSustainable Tourism and C arrying C apacity . . . . . . . . . . . . . . . . . . . . . . . . . . 342

Image, Crowd ing, Visitor Percepcions, Virtual Response, VERP, Ecotourism

6.5 B alearic Islands (Spain): Integrated Tourism M anagem ent Through

Sustainable Indicators. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 345

Demographics, Pressures, Comprehensive Measures, Islands, Prioritization

6.6 The C anary Islands (Spain): A Planning M odel for a M ature D estination . . . . . 351

Scenarios, Touirsm Planning, Islands, Limits to Grow th, Carrying Capacity

6.7 C ape B reton Island (C anada): Indicators of Sustainable Tourism

and Ecotourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 355

Ecotourism, Sensitive Natural Areas, Parks, Community Participation

6.8 The C aribbean Sustainable Tourism Indicators Initiative . . . . . . . . . . . . . . . . . 360

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6.9 C him inos Island (G uatem ala). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 368

Private Sector, Ecolodge, Management Indicators

6.10 El G arraf N atural Park, C atalonia (Spain) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 371


6.11 European Environm ental Agency Indicators: Tourism and the Environm ent

in the European U nion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 377

Regional Indicators, Impacts, Pub lic Report ing

6.12 France: Aggregated N ational R eporting on Indicators. . . . . . . . . . . . . . . . . . . 382

Aggregat ion, Scale, Reporting, Communication

6.13 India: C om m unity Based Tourism in C orbett N ational Park U sing

Appreciative P articipatory Planning and Action (APPA) M ethodology . . . . . . . 386

Community Participation, Small Communities, Qualitative Indicators, Pro ject evaluation,

Perfomance Indicators

6.14 Kangaroo Island Tourism O ptim ization M anagem ent M odel (TO M M ). . . . . . . . 391

Community, Community Participation, TOMM, Monitoring, Implementation

6.15 ‘Keep W inter C ool’: Tourism Sector G reenhouse G as M itigation. . . . . . . . . . . 400

Skiing, Mountains, Climate Change, Impact Measurement, Private Sector

6.16 Kukljica (C roatia): W TO Indicators W orkshop . . . . . . . . . . . . . . . . . . . . . . . . . 402

Indicators Development, Community Participation, Workshop Methods, Islands

6.17 Lanzarote B iosphere Strategy (C anary Islands, Spain): Tow ards S ustainable

D evelopm ent of the Island . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 406

Biosphere Reserve, Islands, Participation, Indicators Development, Strategic Planning

6.18 Sam oa Sustainable Tourism Indicator Project (SSTIP). . . . . . . . . . . . . . . . . . . 413

Strategy Development, TOMM, Community Participation, Priorization, Imp lementation

6.19 Sonke C ape R oute: Inform ation to Support Tow nship SM Es and

C om m unity-based Tourism in C ape Tow n, South Africa . . . . . . . . . . . . . . . . . 418

Tour Route, Community Tourism, Soc ial Tourism, Urban Tourism, Community Participation

6.20 Super, N atural B ritish C olum bia: Assessing B randing Sucess . . . . . . . . . . . . . 422

Image, Branding, Perfomance Measurement, Monitoring, B rand Protection

6.21 Sydney Q uarantine Station (Australia): Applying the Tourism O ptim ization

M anagem ent M odel (TO M M ) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 429Integrated Planning, Management Indicators, Adaptive Management, TOMM, Private Sector

6.22 Tunisia: Indicators and Standards for Tourism . . . . . . . . . . . . . . . . . . . . . . . . . 435

National Indicators, Coastal Zones, Development Cont rol, Hotels, Zoning

6.23 U ganda H eritage Trails: Im pact Assessm ent Indicators. . . . . . . . . . . . . . . . . . 440

Community Participation, Monitoring, Results, Benefits

6.24 Villarrica Lake Area (C hile): R egional Application of Sustainability Indicators . . 448

Regional Planning, Implementat ion, Community Participation, Monitoring

6.25 Yacutinga Lodge (Argentina): Indicators for a Private W ildlife R efuge

and a M odel for M onitoring Physical Trail C onditions . . . . . . . . . . . . . . . . . . . 453

Management Indicato rs, Community Participation, Ecotourism, Trails, Private Sector

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Part 7 Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 463

7.1 Key M essages on the U se of Indicators . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 463

7.2 R oles and C hallenges for Stakeholders. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 463

Annexes

Annex A - Authors and C ontributors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 467

Annex B - R eferences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 475

Annex C - Tem plates . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 485

C 1 Indicators Selection W orksheet. . . . . . . . . . . . . . . . . . . . . . . . . . . . 485

C 2 Indicators D evelopm ent W orksheet. . . . . . . . . . . . . . . . . . . . . . . . . 486

C 3 Indicators R eporting W orksheet . . . . . . . . . . . . . . . . . . . . . . . . . . . 488

C 4 Indicators R e-evaluation W orksheet . . . . . . . . . . . . . . . . . . . . . . . . 490

C 5 Exit Q uestionnaire M odel. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 491

C 6 Local Q uestionnaire M odel. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 494

Annex D - List of B oxes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 497

Annex E - P icture C redits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 501

Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 503

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WTO would like to recognize the considerable efforts from over 60 authors from more than 20countries who helped make this book a reality. Specific sections, boxed inserts and many of the issuessections and cases were written by experts with the specific expertise and experience on each topic. The acknowledgements for individual issues or sections written by these contributors are contained inthe List of Authors (Annex A, p. 467), along with some information about each author.

In the first place, WTO would like to express its gratitude to Dr. Edward W. (Ted) Manning, the leadexpert and principal author of this book. Dr. Manning has been working with WTO in the field of sustainable tourism indicators since 1992, leading an initial expert group, pilot studies, the preparationof the indicators guide published in 1996 and various workshops. He is the author of many chaptersand most photos throughout this guide, and he coordinated and reviewed the contributions of otherauthors as well. His wide experience in sustainable tourism matters and good organization skills werefundamental in the worldwide review of indicators initiatives that lead to this publication.

The work has benefited from the guidance and input of an expert committee from the inception of theproject. Several of the experts met in Madrid in the spring of 2003 to clarify the need and to seekconsensus on direction and contents of the Guidebook. All helped to identify who was involvedworldwide in tourism indicators, and who could be contacted for contributions.

WTO would particularly like to thank Carolyn Wild and Louise Twining Ward who both helped identifycontributors to fill gaps and who provided ongoing review and critical comment on sections. MargoManning also deserves recognition for her editing and review of all of the sections and year long serviceas initial content editor for this project, as well as writer of several sections.

Gabor Vereczi, Programme Officer, Sustainable Development of Tourism Department, has been themain coordinator of the indicators study at WTO. He has been involved in WTO’s sustainable tourismindicators programme since the first regional workshop took place in 1999. He has been instrumentalin identifying information sources and contributors for this guide, in the preparation of several sections,the overall revision and production of the publication. Henryk Handszuh, Head of WTO’s Quality and Trade in Tourism Department, contributed by identifying sources, preparing and revising sections onhealth, leakages, safety and security.

One of the most important products of this initiative is the creation of a worldwide network of expertsand practitioners; it is hoped that this will continue to act as a forum to advance work on indicators forsustainable development of tourism and to exchange information on progress and best practices.

Eugenio Yunis Head, Sustainable Development of TourismWorld Tourism Organization

Acknowledgements


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Tourism is now one of the global engines of development. Every year, more people are in motion thanever before in history. With good planning and management, tourism can be a positive force, bringingbenefits to destinations around the world. If poorly planned and managed, tourism can be an enginefor degradation. It is clearly in the interest of the tourism sector to maintain and sustain the basis for itsprosperity, the destinations for tourism. This Guidebook, produced by the World Tourism Organization,is intended to help the managers of tourism companies and destinations, their partners and other

stakeholders to make better decisions regarding tourism. It focuses on the use of indicators as a centralinstrument for improved planning and management, bringing managers the information they need,when it is required, and in a form which will empower better decisions.

Since the early 1990’s the WTO has pioneered the development and application of sustainabilityindicators to tourism and to destinations. Over the past decade, studies and workshops have been heldat destinations in various regions of the world, with the objective of creating an effective system tosupport better decision-making for tourism. This volume is built on the studies and workshops, and onthe experience of some 60 experts and practitioners working on indicators in more than 20 countries.It is intended to bring information on the state of the art in development and use of indicators to thosewho need good information and who can influence the future of tourism and its destinations. ThisGuidebook is designed to bring practical assistance to tourism and destination managers, and to

encourage them to use indicators as a building block for sustainable tourism in their destinations.Readers are encouraged to use this book as a resource. It contains a range of tools and examples whichcan be of direct use. Most users will not need to read all sections, but, through the table of contentsand index be able to find the sections which respond to their needs. Readers are recommended tobegin with the section “How to Use this Guidebook” on the following page, for a quick introductionto what is available and how it may be of use.

Preface


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Part 1

Introduction

Tourism is now a major sector of the world economy, especially as it refers to the international tradein services. The management of tourism affects the conditions of destinations and host communities,and more broadly, the futures of ecosystems, regions and nations. Informed decisions at all scales areneeded so that tourism can be a positive contributor to sustainable development in keeping with itsrole as a significant source of both benefits and potential stresses. During the decade since the 1992Rio conference, planners and academics in many nations and specific destinations have been working

to develop indicators suitable for their management needs. These indicators have focussed both onissues of impact and sustainability for tourism, and on more traditional management indicators thatrespond to particular needs at many scales.

This Guidebook has been produced to help tourism managers obtain and use the best informationpossible in support of better decision-making regarding sustainable development for tourism.Indicators are proposed as key building blocks for sustainable tourism and as tools which respond tothe issues most important to managers of tourism destinations. While the primary focus of thisGuidebook is at the destination level (See Box 1.2) some attention is also given to indicators that focuson issues at a broader scale, such as at the regional or national level, particularly as they may affectdestinations. Reference is also made to issues which may be site or enterprise specific, but which alsotend to affect the sustainability of tourism operations and their destinations.

Box 1.1 Sustainable development of tourism:

Sustainable tourism development guidelines and management practices are applicable to allforms of tourism in all types of destinations, including mass tourism and the various nichetourism segments. Sustainability principles refer to the environmental, economic and socio-cultural aspects of tourism development, and a suitable balance must be establishedbetweenthese three dimensions to guarantee its long-term sustainability. Thus, sustainable tourism should:

1) Make optimal use of environmental resources that constitute a key element in tourismdevelopment, maintaining essential ecological processes and helping to conserve naturalheeritage and biodiversity.

2) Respect the socio-cultural authenticity of host communities, conserve their built and livingcultural heritage and traditional values, and contribute to inter-cultural understanding andtolerance.

3) Ensure viable, long-term economic operations, providing socio-economic benefits to allstakeholders that are fairly distributed, including stable employment and income-earningopportunities and social services to host communities, and contributing to poverty alleviation.

Sustainable tourism development requires the informed participation of all relevantstakeholders, as well as strong political leadership to ensure wide participation and consensusbuilding. Achieving sustainable tourism is a continuous process and it requires constantmonitoring of impacts, introducing the necessary preventive and/or corrective measureswhenever necessary. Sustainable tourism should also maintain a high level of tourist

satisfactionand ensure a meaningful experience to the tourists, raising their awareness aboutsustainability issues and promoting sustainable tourism practices amongst them.

(WTO Conceptual Definition 2004)


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8 Indicators of Sustainable Development for Tourism Destinations: A Guidebook

1.1 Indicators of Sustainable Development for Tourism

Indicators are measures of the existence or severity of current issues, signals of upcoming situations or

problems, measures of risk and potential need for action, and means to identify and measure the resultsof our actions. Indicators are information sets which are formally selected to be used on a regular basisto measure changes that are of importance for tourism development and management. They canmeasure: a) changes in tourism’s own structures and internal factors, b) changes in external factorswhich affect tourism and c) the impacts caused by tourism. Both quantitative and qualitativeinformation can be used for sustainability indicators. An indicator is normally chosen from a range of possible data sets or information sources because it is meaningful with regard to the key issues to whichtourism managers must respond. Use of that indicator can lead to actions to anticipate and preventundesirable (or unsustainable) situations at destinations.

In the context of sustainable development for tourism, indicators are time series information which isstrategic to the sustainability of a destination, its assets, and ultimately, the fortunes of the tourismsector.

In any destination, the best indicators are those which respond to the key risks and concerns regardingsustainability of tourism, and also provide information which can help clarify issues and measureresponses. Indicators will normally respond to issues concerning the natural resources andenvironment of a destination, concerns relating to economic sustainability, issues relating to culturalassets and social values, and more broadly to organization and management issues, both within thetourism sector and the broader destination.

The criteria and procedures for the definition of a good indicator are elaborated in some detailin Part Two of this Guidebook. Relevance to thekey issues of a destination and practicality of

generation and use are the foremostconsiderations. In addition, criteria relating toscientific credibility, clarity, and ability to beused as benchmarks for comparison over timeand with other destinations are used to helpchoose the indicators likely to have the greatestimpact on decisions or actions. Indicators areconsidered relevant only if they effectivelyaddress the key issues associated with planningand management of a destination. They mustalso be feasible to collect and analyze andpractical to put in place. As a consequence, the

indicators development process is usuallyiterative: in effect a procedure of negotiationbetween the ideal information important to keyissues and decisions surrounding them, and the realities of what can be obtained and at what cost. Theprocedure is dynamic as the continuous improvement of information sources and processing, aimingat more accurate indicators, is an implicit objective. This Guidebook provides some guidance in howto manage the process to produce and use effective and meaningful indicators for the sustainabledevelopment of tourism and tourism destinations.

1.2 Why Use Indicators?

Over the past decade, a great deal of work has occurred on the clarification of the key issues insustainability for tourism and the means by which indicators can support better decisions and actions. The development and use of indicators is increasingly viewed as a fundamental part of overall

Box 1.2 What is a destination?

According to the World TourismOrganization’s working group on destination

management, "A local tourism destination isa physical space in which a visitor spends atleast one overnight. It includes tourismproducts such as support services andattractions, and tourism resources within oneday's return travel time. It has physical andadministrative boundaries defining itsmanagement, and images and perceptionsdefining its market competitiveness. Localdestinations incorporate various stakeholdersoften including a host community, and cannest and network to form largerdestinations."


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9Part 1 - Introduction

destination planning and management, and anintegral element in efforts to promotesustainable development for the tourism sector

at all scales. The stimulus for the tourism sectorcomes from the perception that manydestinations have been at risk due to insufficientattention to the impacts of tourism and to thelong-term sustainability of destinations.Incidences of contaminated beaches anddamaged cultural and ecological assets, hostilereactions to tourists and to tourismdevelopment, and resultant problems for thetourism sector have occurred in many regions.Studies done by the WTO and many others havesupported the conclusion that the planning and

management of tourism in many destinationshave occurred with insufficient information,particularly with regard to the impacts of tourism on destinations, the impacts of changesin the social and natural environment ontourism and the longer term maintenance of thekey assets which make a destination attractive.Within this context, indicators are an earlywarning system for destination managers of potential risks and a signal for possible action. They serve as a key tool, providing specificmeasures of changes in factors most important

to the sustainability of tourism in a destination. Tourism sector decision-makers need to knowthe links between tourism and the natural andcultural environments, including the effects of environmental factors on tourism (possiblyexpressed as risks to tourism) and the impactsof tourism on the environment (which may alsobe expressed as risks to the product).Responsibility requires knowledge. Usingexisting and newly gathered data, changes inenvironmental, social and economic conditions can be detected. This information, in turn, enables thestatus of issues relevant to a destination's sustainability to be gauged on an ongoing basis. Decision

making in tourism planning and management can, therefore, be improved. The objective is to reducefuture risks to the tourism industry and to destinations.

Some of the benefits from good indicators include:

1. better decision-making - lowering risks or costs;

2. identification of emerging issues - allowing prevention;

3. identification of impacts - allowing corrective action when needed;

4. performance measurement of the implementation of plans and management activities –evaluating progress in the sustainable development of tourism;

5. reduced risk of planning mistakes - identifying limits and opportunities;

Box 1.3 The World Tourism Organization(WTO) indicators initiative

Since 1992, the World Tourism Organization(WTO) has been active in the effort todevelop and implement indicators whichhelp in the sustainable development of tourism at different destinations. Begun as ameans to address sustainability issues at allscales, the program has been most successfulin its efforts to aid managers of tourismdestinations to anticipate and preventdamage to their product - and to therebyfoster sustainable tourism at a destination-

specific scale. In 1995-96 a manual forindicator development was prepared basedon initial pilot tests in Canada, US, Mexico,Netherlands and Argentina. Since thepublication of the manual, there have beenseveral regional workshops and case studies,including those organized by the WTO inMexico, Argentina, Hungary, Sri Lanka, andCroatia, where participants from manynations learned about indicators application,helped to advance the methodology, focusedon specific cases to ensure practical

application and testing of the approach. This Guidebook is designed to build on theexperience gained in the various applicationsof indicators by WTO and by many otherexperts and jurisdictions since 1995, and tocontinue to support improvement in theplanning and management of tourismglobally, destination by destination.


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6. greater accountability - credible information for the public and other stakeholders of tourismfosters accountability for its wise use in decision-making;

7. constant monitoring can lead to continuous improvement - building solutions into management.

Box 1.4 Information and indicators

Tourism destinations often already have some data and information available that can serve asindicators, if their relevance is understood.

Tourism professionals work regularly with some indicators; the most commonly used andunderstood measure economic aspects like tourism revenues and expenditures, tourism baseline data and statistics like tourist arrivals, overnights spent, accommodation capacities, etc. These are reference points for business decisions and respond to ongoing management issues.

Many existing data sources can be adapted as indicators measuring sustainability. For example,the number of tourists, (a baseline figure measured in nearly all destinations) can be considereda sustainability indicator, when it is related to desired levels of tourism or to known limits of capacity. As part of a carrying capacity assessment or estimate of limits to acceptable change,tourist numbers (in particular peak use figures) can be related to the use of natural resources(e.g., average water use per tourist) and used to indicate potential levels of stress on natural orbuilt systems. When these same tourist numbers are compared with the number of localresidents, a ratio is formed that can serve as an indicator of potential social stress - one indicatorof the socio-cultural sustainability of tourism. Any data can become a useful indicator – if itresponds to the issues important to a destination.

Many managers operate in an environment which can be considered as data-rich but information-poor.Indicators can help to select, process, analyse and present data to better link with sustainability issues.Decision-makers are often inundated by large quantities of data, and often find it difficult to determinewhich data are important. Some have become generally used indicators for management, for exampletourist numbers. Often the same data can be useful to support decisions which lead to more sustainabletourism development, particularly when their relevance to sustainability is understood. For example,the number of tourist arrivals is a basic indicator conventionally used to measure the success of thetourism sector. It can also be essential information to a number of sustainability issues which are relatedto tourist numbers and levels of stress on resources. Environmental issues, such as water supply orwaste (consumption of water by tourists, amount of waste produced by tourists in peak seasons), orsocial issues related to host communities (ratio of tourists and host population in different periods of the year) can only be effectively understood when linked to tourist numbers.

1.2.1 Indicators at Different Levels

Indicators can support information-based decision making in all levels of tourism planning andmanagement:

• National level - to detect broad changes in tourism at the national level, compare with othernations, provide a baseline for the identification of changes at more localized levels and supportbroad level strategic planning; (see EEA case p. 377);

• Regional level - as input into regional plans and protection processes, to serve as a basis forcomparison between regions and to provide information for national level planning processes;

(see Caribbean case p. 360);• Specific destinations (e.g. coastal zones, local municipalities and communities) to identify key

elements of assets, state of the tourism sector, risks, and performance; (See Part 4 for examples);


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• Key tourist use sites within destinations (e.g. protected areas, beaches, historic districts withincities, areas of special interest) where specific indicators may be key to decisions on site control,management and future development of tourist attractions (e.g., national parks, theme parks)

where management level indicators can support site planning and control; (see for example thesection on tourist sites in or adjacent to national parks p. 272 or the El Garraf case p. 371);

• Tourism companies (e.g. tour operators, hotel-, transport- and catering companies) who mayaccess indicators to feed their strategic planning process for the destinations; (see for example theACCOR hotels case p. 327);

• Individual tourism establishments (e.g. hotels, restaurants, marinas) to monitor the impact andperformance of their operation. (See for example the Chiminos Island case p. 368 and the BowValley Convention Centre Operational Indicatorsp. 289).

Indicators generated at different scales are often strongly interrelated. If aggregated, many can be usedto create higher-level indicators. Related to other sites or regions, they can contribute to comparativeanalysis or benchmarking. For example, indicators of environmental performance gathered atindividual tourism establishments are normally reported to the central management of hotel andrestaurant chains, transportation companies and tour operators as a part of normal business and can beimportant inputs to company level decision making planning processes. Sustainability indicators for adestination are often based on data collected at a more specific level from key tourist use sites, specifictourist attractions, and individual tourism establishments. Destination level indicators are essentialinputs for regional level planning processes that can further accumulate information to support thedevelopment of indicators at the national level.

1.2.2 Types of Indicators

There are different types of indicators, each with different utility to decision-makers. While the mostdirectly useful may be those that help to predict problems, several other genres exist:

• early warning indicators (e.g., decline in numbers of tourists who intend to return);

• indicators of stresses on the system (e.g., water shortages, or crime indices);

• measures of the current state of industry (e.g., occupancy rate, tourist satisfaction);

• measures of the impact of tourism development on the biophysical and socio-economicenvironments (e.g. indices of the level of deforestation, changes of consumption patterns andincome levels in local communities);

• measures of management effort (e.g., cleanup cost for coastal contamination);

• measures of management effect , results or performance (e.g., changed pollution levels, greaternumber of returning tourists).

While all categories of indicators can be valuable in supporting sustainable tourism, the early warningindicators are frequently most useful to tourism managers and may provide the ability to anticipateserious negative effects on the destination, or on the overall tourist experience. Ideally, indicators canenable actions to be taken well before serious threats to sustainability occur. It should also be notedthat the same indicator can frequently serve different purposes and its use can change over time. (E.g.an indicator of stresses on the system will serve later on to measure the effects and results of management efforts taken in response to the problems identified, becoming in effect, a performancemeasure for the response).


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1.2.3 Measurement and Expression of Indicators

An indicator can be applied in practice only if there is a feasible mechanism to measure it. To find the

adequate measures is critical in the design and use of indicators, considering that the data gatheringand processing must be technically and economically feasible. A certain indicator can have differentalternative and complementary methods of measurement (use of different instruments) and can beportrayed in different forms:

The different means to be used to portray indicators include the following:

Quantitative measurements: (where comparable numbers can be obtained over time)

• Raw data (e.g., number of tourists visiting a site/year/month, or volume of waste generated/month/week expressed in tonnes);

• Ratios, where one data set is related to another showing a relationship (e.g. ratio of the numberof tourists to local residents in high season - showing whether tourists outnumber locals, and if

so by how much);

• Percentage, where data is related to total, a benchmark or an earlier measure (e.g., % of wastewater receiving treatment, % of local population with educational degrees of different levels, %change in tourist arrivals and expenditures over last year).

Qualitative/normative measurements:

• Category indices - which describe a state or level of attainment on a graded list (e.g., level of protection of natural areas according to the IUCN Index, Grades in the scales of environmentalcertification systems);

• Normative indicators - related to existence of certain elements of tourism management andoperation (e.g., existence of tourism development plan, or plan with tourism components atlocal, regional and national levels, “Yes or No” questionnaires of evaluation in certificationsystems, such as existence of beach clean-up programmes, beach zoning, first aid booths, petcontrol etc.);

• Nominal indicatorswhich are in essence labels (e.g., Blue Flag certification, which is based onan extensive independently applied checklist in beach management and safety but that appearsto users as a single Nominal Yes/No indicator);

• Opinion-based indicators (e.g., level of tourists’ satisfaction or level of satisfaction of localresidents relative to tourism or specific elements). These are normally based on questionnaires andmay be expressed as numbers, percentages as above - where essentially qualitative data isquantified.

Note that often, where good data is not readilyobtainable at an affordable cost, an alternative indicatormay be available to measure the same risk or issueindirectly, but at lower cost. (See Box 2.11 p. 45).

Field group from the WTO Indicators workshop looks at shore

erosion at Beruwala, Sri Lanka. Recommended indicators from theworkshop for the extent of coastal erosion were:• metres change per annum

• % of beach area affected



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Where clear goals (with specific targetsassociated) are in place, indicators become keyboth to monitor implementation towards them

and as a means to claim successes where theyoccur. At a broader level, indicators may assistin drawing attention to whether a plan orstrategy responds to the overall goal of sustainability. A focus on indicators promotesdialogue on the specific definition of what ismost important to be sustained, and whetherthese have changed.

Where a planning process is already in place,some information has usually been collectedand plans developed at least in part in response

to that information. A more systematicdevelopment and application of indicators canreinforce and improve the process bystimulating better use of existing data sources,identification of new ones, improvement of datacollection and analysis processes, andimprovement of reporting and communicationfor the stakeholders involved. Clarification of key indicators can frequently stimulate re-examination of plans and clarification of performance measures. In a recent WTOapplication in Cyprus an indicators programwas implemented to complement an ongoingplanning and policy process and to act as acatalyst for greater participation by stakeholdersin both defining issues and providing data.

Box 1.6 What if there is no plan? What if there is one?

The sustainable development of tourism destinations requires a sound planning process, as wellas continuous management of the key elements that support tourism and its destinations. (e.g.,maintenance of assets, involvement of the community, involvement of tourism in the planning

process for the destination) Indicators are an intrinsic component of the planning process.

Where no plan currently exists

• Where no plan exists that includes tourism, the procedure by which indicators are developedis analogous to the first step in plan development. Both involve the identification of the keyassets and key values associated with the destination. Both normally involve the assessmentof the actual problems, current or potential impacts or risks associated with development, aswell as documentation of the major current or expected trends or events which may affectthese;

• An indicators study can be the catalyst for development of a formal plan or planning process,beginning with identification of potential issues (pollution, loss of access, impacts of

development in other sectors). Response will likely require some form of plan or managementprocedure;

Box 1.5 Providing clarity to policy andprogram goals: Canadian rural indi-

cators

Policy goals are often defined very broadly. In2000, Canada defined a broad set of policygoals for rural development through anextensive public consultation process. Thegoals defined were very broad, includingsuch goals as “improved rural leadership”and “improved quality of life for ruralresidents”... Through a subsequent series of indicators development workshops with theofficials who would have to respond to these,

a series of indicators was developed. Theprocess was essentially one of clarifying whatwas really meant by such general goals as“leadership” and “quality of life” – not aneasy task. While other goals such as“improved access to education” or “health”were amenable to some measurement, theprocess demonstrated the need to furtherexamine what was really meant by the goals,and stimulated a re-examination, with thestakeholders, of what were the real issues. Inthis case, the attempt to develop and report

on progress towards the public goals led to are-examination of the goals and an objectiveassessment of whether they were realistic,and attainable.


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• An indicators exercise can help identify key elements that must be included in plans, such asthe resource base for the industry, or risks to the assets or product;

• Performance indicators can be defined relative to the specific goals and targets of the plan.Each specific development project can integrate performance indicators in order to measurethe success of management actions in the implementation phase. This information will serveto decide whether corrective actions are needed and also can provide a tool for continuousmonitoring;

• Indicators defined to analyse actual environmental and socio-economic conditions at theinitial phase of the planning process can became performance indicators in theimplementation phase. For example, indicators determining the actual state of seawaterquality at beaches or actual levels of community income from tourism will serve later on tomeasure achievement relative to these goals.

Where there is a plan• An indicators study can assist in evaluation of current regional or tourism plans to determine

whether all of the key risks to sustainable development of tourism are covered;

• The indicator identification exercise can be applied to already defined problems, issues andobjectives to improve the provision of accurate data and information where needed;

• Where no monitoring system or performance measures are included in an existing plan, theindicators development process can assist in identifying and clarifying key areas whereperformance measures are needed;

• Indicators discussions can often stimulate greater precision in redefining goals and targets.

Indicators as tools for public information and education

• Within and outside of the planning process, indicators are a form of education all tool -helping to highlight key concerns for public information;

• The results of indicators use may well foster demands for action - and lead to public supportfor more inclusive planning procedures to protect and sustain the key values in anydestination.

Source:W TO Kukljica Final Report

1.2.5 Indicators as a Catalyst

If there is no strategy or plan (or even planning authority) the process to develop indicators is aneffective means to focus attention on key issues, obtain information on the state of actual conditions,set goals and identify actions to produce improvements. In other words, indicators can be the triggerfor a more systematic planning or management process. The procedures delineated in this Guidebookcan bring potential stakeholders together to discuss what is important, to define key assets andsensitivities, and often to realize that many of the most important issues are shared. Ideally, theindicators development process can begin a dialogue which results in some form of plan and stimulateresponse to key issues in a destination. It has also proven very useful in creating partnerships forsolutions that can benefit many different stakeholders. In many of the regional applications using theWTO methodology, (e.g., Keszthely - Hungary, Cozumel - Mexico, Peninsula Valdes - Argentina,Beruwala -Sri Lanka) the indicators workshops held by WTO were the first time a majority of the keylocal stakeholders had met together, and many who had arrived with the conviction that the otherswere adversaries left with a changed understanding of shared goals and the potential to work togetherfor shared solutions, even if it only meant sharing information. Participation by officials at all levels of


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jurisdiction reinforced the realization that there were shared interests and that indicators developed byone level could often be adapted or combined to support information needs at other levels.

Box 1.7 A hierarchy of indicators

Indicators can be defined at all scales, from local to global. Important indicators for a destinationmay refer to a limited local phenomenon such as reduction in a key endangered species, whichis the basis for the tourism in the destination, to much more global issues involving health orsecurity issues (Sudden Acute Respiratory Syndrome -SARS is a contemporary example), whichcause risk to the sustainability of a destination.

The documents cited in the following sections are pitched at a variety of levels, from globalsystems to very local applications (and even to the enterprise level). Indicators at a destinationlevel can sometimes be rolled up to be used to address national and broader issues. They mayalso be used at a regional or national level to identify site or destination specific anomalies (e.g.,the “worst” site in the nation in terms of crowding, or the “greatest progress” in improvement of beach cleanliness or service quality).

Indicators at many different scales are potentially relevant to the management of tourism in adestination. Here is one example with reference to Prince Edward Island National Park and itsperipheral community in the Atlantic region of Canada... (Indicators pilot study 1995,summarized in Manning et al, 1997).

National, % of visitors to Canada who visit PEI National Park;

Regional, % of visitors to the Atlantic region who visit PEI National Park;

Local destination, % visitors to the Park region who stay over night;

Site, Maximum number of visitors to the beach area on peak day;

Establishment % occupancy of accommodation in Park region.

Note that specific indicators when aggregated may be of use to higher order jurisdictions to measure collective results (such as average occupancy at the regional level).

1.3 Progress in Indicators Development and Use

1.3.1 Growing Indicators Initiatives Worldwide

There is now an increasing role for indicators in support of tourism management processes, includingpolicy development, regulation and enforcement, and the development of certification and standards.Indicators research and applications have been done in all parts of the world by governments,academic institutions, and private companies and by communities themselves.


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Box 1.8 Global initiatives:

There are various international initiatives that provide the rationale for indicators of sustainabledevelopment and also suggest particular measures which may be of use at many scales. Theseinclude:

• The Agenda 21, defined at the Rio Earth Summit, in Chapter 40 defines the need forappropriate information that supports decision-making, and suggests the elaboration of indicators of sustainable development;

http://www.un.org/esa/sustdev/documents/agenda21/english/agenda21chapter40.htm

• The Agenda 21 for Tourism(WTO, WTTC, EC, 1995), presents indicators as one of the priorityaction areas, and a principal tool for monitoring. http://www.world-tourism.org/sustainable;

• The UN Commission on Sustainable Development has developed a Theme Indicator

Framework, which address overall sustainability issues, with specific subsets that may bedirectly applicable to tourism destinations or to key assets. It also defined guidelines fordeveloping a national indicator programmes;

http://www.un.org/esa/sustdev/natlinfo/indicators/isd.htm

• The Global Reporting Initiative (GRI) attempts to set world standards on environmentalreporting for public and private organizations. http://www.globalreporting.org/;

• Based on GRI, the Tour Operators Initiative has elaborated guidelines for sustainabilityreporting through performance indicators for tour operators. http://www.toinitiative.org/.

Often indicators development has occurred in response to specific issues or risks. For example, inCanada, workshops and applications have more frequently focussed on issue-specific indicators (e.g.,park management, mountain ecosystems). Indicators development has occurred at the communityscale on social and ecological sustainability (South Africa), and limits to acceptable growth forimpacted natural destinations, (USA, Australia). There have been several innovative applications toheavily used destinations in many parts of Europe, within the context of carrying capacity, (e.g. Malta)visitor management strategies (e.g., Britain), Local Agenda 21 processes (coastal destinations of Spain),and comparative analysis of the state of destinations (e.g., France, Spain). In many cases, indicatorshave been a means to attract political attention to tourism management issues and to create leveragefor their solution.

1.3.2 Advances in Indicators Methodologies

There has been growing interest from a number of academic institutions, (see references section) bothto help advance indicator development related to sustainability issues and to use indicators as a vehiclefor teaching purposes. Research projects has begun work to solicit input from a range of academics andpractitioners concerning their opinions on the characteristics of successful tourism sustainabilityindicators, and on whether there are standards that may be attributed to these indicators within anoverall framework of sustainability.

Work on destination management and the identification of approaches to sustainability have allinvoked indicators and measures that may be of use more broadly. A 2002 project on indicators inCape Breton Island Canada (p. 355) tests the utility of indicators as a tool to help differentiate betweenoverall destination sustainability and the specific risks to ecotourism products and assets. Several

international initiatives have suggested broad sets of indicators for uses relevant to tourism. (See Box1.8 and European Environmental Agency case studyp. 377) The broad range of initiatives now providesa rich reservoir of examples and applications that can be of use to those seeking to improve

http://www.un.org/esa/sustdev/documents/agenda21/english/agenda21chapter40.htmhttp://www.world-tourism.org/sustainablehttp://www.un.org/esa/sustdev/natlinfo/indicators/isd.htmhttp://www.globalreporting.org/http://www.toinitiative.org/http://www.toinitiative.org/http://www.globalreporting.org/http://www.un.org/esa/sustdev/natlinfo/indicators/isd.htmhttp://www.world-tourism.org/sustainablehttp://www.un.org/esa/sustdev/documents/agenda21/english/agenda21chapter40.htm


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management of destinations through the development and use of indicators. The results of these studiescan also be used to benchmark indicators for use in other destinations. Similarly, at the corporate level,organizations such as the International Hotel Environmental Initiative have established the means for

hotels to generate and exchange information on a wide range of economic, social and environmentalfactors related to sustainability, permitting benchmarking between hotels.(http://www.benchmarkhotel.com).

1.3.3 Indicators Initiatives of Other Sectors

Since the beginning of the 1990’s there have been many developments in sectors other than tourismpertinent to indicators development and application. These range from broad efforts to create universalindicators lists for application to global, national or community sustainability, to efforts to createspecific indicators to support a range of planning and development objectives. Examples includeindicators development for integrated regional development (e.g. Chile), indicators of the state of urban

systems (Spain), broad national or international reporting programs on state of the environment (e.g.,OECD, European Environmental Agency, UNDP, China, Canada), indicators to be applied tosustainability of specific sectors or to cultural and natural assets (UNESCO, EEC, many nationalapplications).

There have also been many examples of interesting local applications to e.g. national parks (USA), orsmall islands (Small Island States section, UN Millennium Indicators(http://millenniumindicators.un.org/unsd/ ). In Chile, for example, a comprehensive program of development of regional indicators has been undertaken, linked to the regional planning process. Thetourism industry is a participant in this process, particularly in those regions where it is an importantsector of the regional economy (CONAMA, (http://www.conama.cl/portal/1255/article-26210.html).

In addition to explicit work on indicators, there has been considerable de facto development of indicators to address issues such as regional planning, carrying capacity, and community quality of life.Such indicators have frequently been the engine for direct application in the planning and managementprocess (e.g., US Parks Service). Similarly, the use of indicators has been a key element during broaderplanning exercises, such as the Tourism Optimization Management Model (TOMM) initiatives forKangaroo Island, South Australia (p. 391), and the development of carrying capacity estimates for Malta.It should be noted that there is growing work in academic institutions in many countries to advance theconcept of indicators both, from the industry perspective and from those of impacted communities andecosystems (Several interesting cases can be found in the case studies section, Part 6).

Because tourism is clearly part of broader development processes, the tourism sector can benefitsignificantly from the information, data and indicators developed by other sectors. The information,data and indicators produced through global and national processes, as well as other administrations

(e.g. environment, economy, trade, transportation, etc.) and economic sectors provide importantinformation for tourism indicators, given that tourism itself is an activity incorporating many differentsectors. Collaboration between ministries has also been important for the production of indicators of interest to more than one constituency. For example, in Spain an initiative of the Secretary of theEnvironment has, in collaboration with the tourism sector, produced Environmental Indicators for Tourism... (España, Ministerio de Medio Ambiente 2001).

In the work to develop indicators, much has been done which is potentially relevant, both in theoryand in application, to efforts directed at planning and implementing measures to support sustainabletourism. For example, direct parallels to the indicators work done by WTO can be seen in thedevelopment and use of indicators and performance measures for regional planning in nationsincluding Chile, Taiwan, Australia, Canada, and many European countries. Some of this work has beenaimed at aggregating data for national decisions, while other work has focussed on smaller regionssimilar in scale to the destination-specific work that has been the focus of WTO applications.

http://www.benchmarkhotel.com/http://www.benchmarkhotel.com/http://millenniumindicators.un.org/unsd/http://www.conama.cl/portal/1255/article-26210.htmlhttp://www.benchmarkhotel.com/http://www.conama.cl/portal/1255/article-26210.htmlhttp://millenniumindicators.un.org/unsd/


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1.3.4 Indicators and Performance Measurement

The fields of evaluation and results-based management are also an emerging source of information on

advances in indicators development and application. This is particularly important in relation to theexpansion of traditional performance evaluation methods to account for broader social outcomes.Social accountability is an increasing focus for the governments of many OECD countries, whereperformance measurement is increasingly aimed at the identification of indicators to assist in theassessment of whether social goals, environmental objectives and standards, and more abstract goalssuch as equity, quality of life, and sustainability are being achieved. Certification initiatives necessarilyinvolve the establishment of criteria. Compliance with the criteria is measured by indicators, associatedwith specific performance to obtain the official recognition. (See the Performance Measurement sectionof Part 5 (p. 302) for specific examples).

Evaluators begin with the identification of broad goals and objectives and then seek appropriatemeasures or indicators to allow monitoring of their achievement. The identification of key performancemeasures is often done via a consultative process with key stakeholders to define those indicators thatbest capture the desired outcomes, and which can support decisions on policies and programs. Cleardefinition of which indicators are needed can then result in more strategic positioning of data gatheringand better targeted analysis, so that the information is most likely to make a difference.

Initiatives aimed at the measurement of success in regional development (OECD and EEC), theachievement of rural and regional development goals (England), and the measurement of comparativequality of life (UNEP) are of interest to the tourism sector. A further source of methodology and appliedexamples is in the growing field of rapid assessment (e.g., rapid project assessment, RUEA - rapid urbanenvironmental assessment, rapid assessment of health risks or environmental conditions) whereinternational development organizations are increasingly using participatory processes to identify keyissues and indicators relevant to project and program goals, and using data mining (use or manipulationof existing data) to obtain information to support the process. While rapid assessment is designed to

provide an initial evaluation of state, rather than performance over time, the participatory process doesidentify key factors of importance and ideally leads to monitoring (and the identification of keyindicators) as part of the next steps of any project or program.

1.4 Expected Use and Users

While the principal target for use of this Guidebook is the destination management organization(usually at the local authority level), this Guidebook can also be of use to others in, or associated with,the tourism industry. Destination managers or authorities are the key front line decision-makers formany of the issues and challenges related to the sustainable development of their destination; yet, thecauses of the issues and the partners in their solution will necessarily include others, whose main

interest may focus at local, national or even international levels.

In addition to destination managers, other potential users of the Guidebook may include:

• Tourism administrations and other public authorities at the regional and national levels, who mayneed to aggregate data from several sites or destinations;

• Tour operators, transportation companies and other service providers;

• On-site managers of specific attractions, natural and cultural sites or protected areas, and thosewho manage product development;

• Facility planners and managers for resorts, accommodation and other tourism establishments;

• Researchers and students dealing with tourism-related development issues;



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• Members of interest groups, community organizations and the host community, who wish to beinformed participants in the development of destinations;

• Informed tourists, who wish to understand and help maintain the basis for their tourism.

Users are encouraged to make use of all of the sections of this Guidebook in the development of indicators most suitable to their needs.

Moorea, French Polynesia. Even paradise has risks and can benefit from good indicators.



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2.1 Key Steps to Indicators Development and Use

The recommended methodology for indicators development is a phased approach that results in

operational indicators for a destination. The methodology features a participatory process which, initself, produces benefits for the destination and for the participants, and is used as a training tool. Thesuggested procedure for indicators development includes various steps that form part of normal tourismplanning processes (e.g. the identification of tourism assets and initial assessment of risks andopportunities). As noted in Part 1, wherever there is already an established tourism developmentstrategy and planning process, the focus on indicators can help improve the provision of accurateinformation, and lead to productive monitoring processes. Where a plan already exists, it can be thepoint of departure for indicators development, and information may already be regularly collected, andit will be available to support some indicators. In Box 2.1 the relationship between indicatorsdevelopment steps and traditional approaches to planning is outlined, showing the links and usesindicators may have at any stage in the planning process. Where there is no formal tourism planningprocess in place, this approach stresses the importance of starting with the basic steps to be as clear as

possible on what it is intended to sustain; the indicators development process can help to clarify this,and can trigger policy formation and tourism planning. Even where there is a strategy or plan in place,it is useful to review all of the steps: the focus on indicators can improve data sources and processingcapacities, as well as reporting mechanisms that support monitoring and management processes. (Seealso Box 2.5 which shows the process applied in Kukljica, Croatia, and Part 5 which addresses meansto use and portray indicators).


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23Part 2 - Indicators Development Procedures

Box 2.1 Indicators and planning procedures – links and relations

Planning process

A. Definition/delineation of thedestination /development area.

B. Establishment of participatoryplanning process.

C. Formulation of vision and/ormission statement.

D. Initial assessment and analysis

of assets, risks, impacts (situa-tion analysis).

E. Setting up development objec-tives (for the short, mediumand long term according topriority needs).

F. Formulation and evaluation of strategies targeting develop-ment objectives.

G. Formulation of action plansand specific projects based onthe optimal strategy.

H. Implementation of action plansand projects.

I . Monitoring and evaluation of plan and project implementa-tion.

Steps in indicators work

Research and organization1. Definition/delineation of the

destination (to identify scope of information needs for indicators).

2. Use of participatory processesfor indicators development.

3. Identification of tourism assetsand risks.

4. Long-term vision for a destina-tion – clearly defined.

Indicators development5. Selection of priority issues and

policy questions.6. Identification of Desired

Indicators.7. Inventory of data sources.8. Selection of indicators.

Indicators implementation9. Evaluation of indicators feasibi-

lity and implementation proce-dures.

10.Data collection and analysis.

Ideally indicators are built int o th e action ph ases of plan ning an d implementation.

Data gathering a nd an alysis occur on an ongoing basis.

Policy ob jectives can al so t arget developm ent of dat a sources and processing capacities that supports indicators application.

11.Accountability, reporting andcommunicationMonitoring and evaluation of imp lementation should be con- ducted on an ongoing b asis,w ith periodic reporting of results,using indicators.

12.Monitoring of indicators applica-tionPriorit y issues, info rm atio n sources and processing capacities can

chang e,so it is also n ecessary to verify the approp riat eness of indicators periodically.

Role of indicators

The definition of area reflects databoundaries (management or politi-cal units for access and utility).

Indicators are part of participatoryplanning process and catalyst to sti-mulate it.

Key step in indicators work is toidentify existing vision, and clearlydefine key elements.

Indicators are essential to clarify keyissues, assets, risks and provideaccurate information on them.Indicators are used to report on theresults of the initial assessment tothe stakeholders involved.

Indicators help to provide clarity todevelopment objectives – can beused to set targets andperformance measures. Essential fordefinition of clear targets and time-frames, and communicate them tostakeholders.

Indicators can be used to define oranalyze fit between issues and stra-tegies.

Indicators become performancemeasures for projects and activitiesand assist in definition of specifictargets.

Indicators are what is monitoredand evaluated about:- management processes, direct

program and project outputs;- progress in achieving defined

objectives;- changes in environmental and

socio-economic conditions as aresult of actions.

Indicators form key part of publicaccountability for implementation

and results.


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Initial Phase: Research and Organization

The initial phase involves the collection of key information on the destination, tourism conditions,

stakeholders, past concerns, and previous studies that can be used to support the development andimplementation of indicators. Initial contacts are made at this stage with key local experts at thedestination. The objective is to obtain clarity in the identification of the current state of the destinationand its tourism, determine trends and potential risks to the industry, and make clear the roles of keystakeholders before focusing on issues and indicators.

Step 1. Definition / Delineation of the Destination

Establishment of destination boundaries

Definition of the destination is a necessary first

step. For a successful indicator program, it isimportant to be completely clear, at thebeginning, on the geographic boundaries andpolitical jurisdictions that circumscribe the areato which the program is to apply. While there isa generally accepted definition of “destination”(SeeBox 1.2: What is a destination? ), in practicethe delineation of boundaries can be achallenge. When indicators are to be applied toa defined destination (e.g., a national park or aresort community) the existing jurisdictionalboundaries can be a point of departure. Even inthese types of destinations, tourism often affectsadjacent areas or communities. For example,park peripheries typically contain many of theservices used by tourists visiting the park.Visitors to a resort normally will also visitnearby mountains, islands, communities orother attractions which may be outside theproperty or jurisdictional boundaries of theprimary site of the visit. As a consequence, theselection of boundaries is usually a compromise – an attempt to encompass the main assets andactivities and to reflect the political, ecological or other boundaries to the maximum extent possible.Adjustments (and selection or delineation of sub-destinations, critical sites or hot spots) may occurduring subsequent phases of indicators development as key data are found, based on other boundaries,

or as new information is acquired regarding relationships with adjacent areas.

Even in island destinations, which may appear initially to be the easiest to demarcate, it has provennecessary to respond to the fact that many visitors use the adjacent sea for much of their vacationactivities, and typically visit adjacent mainland sites or other nearby islands as part of their vacation,drawing as well upon services from the areas outside the island. (e.g., in the case of the WTO study of Cozumel, Mexico, it was found that most visitors also spent some time in Cancun or the Costa Maya.In the case of the islands of Ugljan and Pasman, Croatia, most visited the city of Zadar, which was easilyaccessible by ferry). In these two destinations, the political organization was such that for manyplanning decisions and programs the islands were combined with mainland areas, with somepotentially useful data currently available only for the combined areas.

Research and Organization

1. Definition/delineation of the destination2. Use of participatory processes.

3. Identification of tourism assets and risks.

4. Long-term vision for a destination.

Indicators Development

5. Selection of priority issues.

6. Identification of desired indicators.

7. Inventory of data sources.

8. Selection procedures.

Implementation

9. Evaluation of feasibility/implementation.10. Data collection and analysis.

11. Accountability, communication andreporting.

12. Monitoring and evaluation of indicatorsapplication.


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25Part 2 - Indicators Development Procedures

The following rules of thumb may assist in the choice of destination boundaries:

a) Include key sites and assets. The boundaries should wherever possible surround all of the key

assets of the destination. Does the defined destination contain all the areas affected by tourismactivity? (e.g., where the tourist sector workers live);

b) Try to match existing boundaries. Where feasible, political boundaries should be followed. Canthe destination boundaries be matched to the boundaries of existing data units such as censusareas, municipal boundaries, or management districts for which data is likely to exist? Wheredifferent agencies have different boundaries, the boundaries used by the principal potential userof the indicators (likely the planning authority) should be favoured;

c) Reflect natural or ecological areas. Wherever possible, boundaries should be selected reflectingphysical or ecological boundaries. The ideal is sometimes attainable by selecting politicalboundaries which best emulate biophysical ones. (e.g., combining political sub-areas to bestmatch the limits of the valley, the island, or the mountain range);

d) Consider subdividing the destination. In some cases it may be useful to subdivide the destinationinto parts for separate analysis, particularly where there are significant differences between partsof the destination such as a core area where most of the activity occurs and a peripheral areawhich is also clearly impacted or involved. (e.g., the study of Prince Edward Island National Parkin Canada divided the “destination” into the Park itself and the peripheral resort municipality and,where necessary, defined indicators for each separately);

e) Consider specific sub-areas for special consideration. Within each destination there may be areasof concentrated activity or “hot spots” (e.g., the beach, a specific

indicators of sustainable development for tourism destinations a guide book by unwto

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