Documentos de Académico
Documentos de Profesional
Documentos de Cultura
By Department of Tourism
Department of the Interior and Local Government
Department of Environment and Natural Resources
Development Academy of the Philippines
This knowledge product is produced through the collaboration among the Department of
Tourism (DOT), Department of the Interior and Local Government (DILG) and Department
of Environment and Natural Resources (DENR) with the funding support provided by the
Government of Canada thru the Local Governance Support Program for Local Economic
Development (LGSP-LED) project and the United Nations Development Programme (UNDP) thru
the Biodiversity Partnership Project (BPP) and the Center for Governance of the Devepopment
Academy of the Philippines (DAP).
ISBN 978-971-91303-9-0
This Guidebook is owned jointly by the DOT, DILG, DENR and DAP, with each party having
royalty free non-exclusive and irrevocable license to use, publish, copy, reproduce or distribute
the work for government or public purposes.
Getting started...
Do you think your city, municipality, or province has potential for tourism
development that you want to harness?
Is tourism a thriving industry in your locality and you want to take better
advantage of it?
The development of this Tourism Guidebook would not have been possible without the initiative and
collaboration of the Department of Tourism, Department of the Interior and Local Government, and
Department of Environment and Natural Resources, with vital funding support provided by the
Government of Canada thru the Local Governance Support Program for Local Economic Development
(LGSP-LED) project and the United Nations Development Programme (UNDP) thru the Biodiversity
Partnership Project (BPP).
This project owes its completion to the following members of the Technical Working Group (TWG)
for the Development of Tourism Guidebook for Local Government Units and to the consultants and
project staff from the Development Academy of the Philippines.
Department of Tourism
i Acknowledgement
Development Academy of the Philippines
• Writers
Julie Catherine D. Paran, PhD.
Donna Paz T. Reyes, PhD.
Rodrigo P. Millares, Jr.
Kim Dyan A. Calderon
Lilibeth L. Coronado
• Peer Reviewer
Architect Maria Lisa V. Santos
• Copy Editor
Jeremaiah M. Opiniano
Donors
• Government of Canada through the Local Governance Support Program for Local
Economic Development (LGSP-LED)
Francis E. Gentoral – Field Director
Ramon A. Alampay, PhD. – Program Manager
Sylvia Bagadion-Engracia - Gender Equality Adviser
Veronica Paula C. Manzon - Specialist, Business Friendly and Competitive LGUs
Acknowledgement ii
Special thanks are given to the Local Chief Executives, Local Planning and Development Officers, and the Local
Tourism Officers and representatives of the following LGUs who participated in the focus group discussions and
pilot-testing activity for this project:
iii Acknowledgement
List of Acronyms and Abbreviations
AIP Annual Investment Plan
ASEAN Association of Southeast Asian Nations
BLGD Bureau of Local Government Development
BMB Biodiversity Management Bureau
BOT Build-Operate-Transfer
BP Business Plan
BPP Biodiversity Partnership Project
CDP Comprehensive Development Plan
CDs Cluster Destinations
CENRO Community Environment and Natural Resources Office
CESO Career Service Executive Officer
CIDA Canadian International Cooperation Agency
CLUP Comprehensive Land Use Plan
CPDO City Planning and Development Office
DA Department of Agriculture
DAO Department Administrative Order
DAP Development Academy of the Philippines
DAR Department of Agrarian Reform
DBM Department of Budget and Management
DDF Destination Development Framework
DENR Department of Environment and Natural Resources
DFA Department of Foreign Affairs
DILG Department of Interior and Local Government
DILG Department of the Interior and Local Government
DOF Department of Finance
DOT Department of Tourism
DOT-ROs Department of Tourism-Regional Offices
DRRCCA Disaster Risk Reduction and Climate Change Adaptation
DRRM Disaster Risk Reduction and Management
DRRMC Disaster Risk Reduction Management Council
EDP Economic Development Plan
EIA Environmental Impact Assessment
ELA Executive Legislative Agenda
EO Executive Order
ETC European Travel Commission
GAD Gender and Development
GAM Goal Achievement Matrix
GIS Geographic Information System
GREAT Women Gender Responsive Actions for the Transformation of Women
HLURB Housing and Land Use Regulatory Board
JICA Japan International Cooperation Agency
JMC Joint Memorandum Circular
KSA Knowledge, Skills and Attitudes
LAC Limits of Acceptable Change
LCCAP Local Climate Change Action Plan
LCE Local Chief Executive
LDC Local Development Council
LDIP Local Development Investment Plan
LDRRMP Local Disaster Risk Reduction and Management Plan
LGC Local Government Code
LGOO Local Government Operations Officer
LGSP-LED Local Governance Support Program for Local Economic Development
LGU Local Government Unit
LPC Local Planning Committee
LPDO Local Planning and Development Officer
Tourism comprises the activities of persons travelling to and staying in places outside their usual environment
for not more than one consecutive year for leisure, business and other purposes not related to the exercise of an
1
activity remunerated from within the place visited.
Tourism development and promotion are among the functions of Local Government Units (LGUs) as mandated
by the Local Government Code of 1991 (RA 7160). As local governments shifted to more participatory forms of
development governance, they were also encouraged to enjoin other
stakeholders in local tourism development and promotion.
The National Tourism Act of 2009 (RA 9593) encourages LGUs to ensure they prepare and implement a tourism
development plan, enforce standards and collect statistical data for tourism purposes. Local tourism development
plans should integrate zoning, land use, infrastructure development, the national system of standards for tourism
enterprises, heritage and environmental protection imperatives in a manner that encourages sustainable tourism
development. The plans should also take into account gender considerations as well as disaster risk reduction and
climate change adaptation principles.
LGUs, particularly those identified as priority Tourism Destination Areas, also need to understand the following
key tourism planning concepts which served as basis for the Destination Development Framework used in the the
3
• Tourism Sites (TSs) are the specific places which tourists come to see and experience. A
TS may be an existing natural attraction (volcano); an area of natural scenic beauty (national
park); or man-made attraction (heritage structure, beach/golf resort). It can also be a site or
area for potential development or enhancement for tourism such as a green field site for a
new resort, or a coastal area, which could be designated as a marine park.
• Tourism Development Clusters (TDCs) are identified and delineated using the following
criteria: existence of a sufficient number and range of tourism sites with capacity to meet long
term development possibilities; topographical features; contiguousness of land masses;
geographical size – large enough to contain extensive range of potential tourism products/
experiences; location of “gateway” centers and cities; location of significant brand/unique
features and/or “world class” attraction; robust, sustainable environmental base; and, access
transport linkages/connectivity.
• Tourism Development Areas (TDAs) consist of at least one, but more usually several
tourism sites. A TDA can either have considerable existing tourism activity or have the
potential for significant tourism development. By virtue of a combination of attractions,
facilities and amenities which meet tourists’ interests and needs, TDAs provide the
operational focus for the development of tourism within the various TDCs. Although TDAs are
not limited by geographical size, their boundaries correspond to administrative units –
barangay, municipality or province, depending on size.
vii Introduction
• Strategic Destination Areas (SDAs) are a group of priority TDAs that are adjacent to each other and are within
their respective clusters. The criteria used to identify the SDAs were: critical mass of attractions, facilities and
services in the area; capacity of environment to sustain tourism development; capability of direct accessibility from
key source markets; diversity of product offer in a way that can be promoted to different niche markets, thereby
facilitating product/branding; area geographically large enough to allow different forms of tourist development
to co-exist, for example including particular areas for nature tourism only, other areas for more intensive use; and,
capable of being promoted as “stand alone” destination in the market place.
4
Tourism contributes to the overall development of the LGU. Thus, in formulating the Local Tourism Development
Plan, LGUs need to ensure its alignment with other local plans like the Provincial Development and Physical
Framework Plan (PDPFP), Comprehensive Development Plan (CDP) and Comprehensive Land Use Plan (CLUP).
Alignment of the Local Tourism Development Plan and LGU Business Plan is important to ensure that development
of vital tourism-related investments or business opportunities are considered.
Further, ensuring the linkages of the Local Tourism Development Plan with the PDPFP, CDP, and CLUP helps
mainstream two major development concerns like Disaster Risk Reduction and Climate Change Adaptation (DRR/
CCA), which significantly impact tourism development.
Introduction viii
Using the Tourism Guidebook
This Tourism Guidebook has been developed as one of the support mechanisms to “enhance the capability of
LGUs to monitor and administer tourism activities, and enforce tourism laws, rules and regulations in their respective
5
jurisdiction.”
The Provincial, City and Municipal Tourism Officers can benefit a lot from this Guidebook given their responsibilities
in the local tourism development. Local Tourism Officers play a central role not only in tourism promotion but also
in the preparation, implementation, and updating of local tourism development plans, as well as enforcement of
tourism laws, rules and regulations. Being the coordinator for all these activities, the Tourism Officer should be able
6
to have good grasp of the fundamental concepts and process of tourism development.
The Provincial, City and Municipal Planning and Development Officers can also use the Guidebook to properly
integrate tourism development into the larger context of the land use and comprehensive development of their
respective LGUs. They should also work closely with the tourism officers to ensure that planning standards are
considered and other development concerns are addressed in the implementation of tourism programs and
projects.
Tourism development in the localities is not the sole function of the LGU as it requires concerted effort of the whole
community and active engagement of different stakeholders. Thus, this Guidebook may be used by stakeholders
(who may also be members of the Tourism Council) so that they can fully participate in each phase of local tourism
development from planning, implementation, and monitoring and evaluation.
• The guide in Formulating the Local Tourism Development Plan (TDP) contains
simplified discussions of concepts, methods, step-by-step processes and worksheets, including
examples to aid users in developing elements of the TDP.
• Supplemental Readings which can help you understand the different tourism concepts and
tourism planning processes better. The supplemental readings can be used separately,
depending on the needs of your LGU and the specific level of tourism development in the
destination. They may also be used in combination with other readings. The eleven
supplemental readings are as follows:
1) Profiling the Local Tourism Industry helps you prepare an inventory of tourism resources
and assets; assess the tourism situation in your area; list down potential safety, security
risks and natural hazards; and prepare a profile of tourists and visitors in your locality.
2) Linking the Local Tourism Development Plan with the Local Mandated Plans outlines
how the TDP would be placed in the context of your CDP (Comprehensive Development
Plan) and CLUP (Comprehensive Land Use Plan), at the municipal/city level or the PDPFP
Provincial Development and Physical Framework Plan) at the provincial level.
3) Adopting the Local Tourism Development Plan walks you through the steps on
mobilizing support and commitment towards plan institutionalization and provides
tools and tips to facilitate adoption and institutionalization of the TDP.
1
United Nations World Tourism Organization. 2007. Understanding Tourism: Basic Glossary, Retrieved from media.unwto.org/en/content/understanding-tourism-
basic-glossary on November 7, 2013.
2
RA 9593, Chapter II. Tourism GA 9593, Chapter II. Tourism Governance, Subchapter 11-E. Shared Responsibilities Of National And Local Governments, SECTION 37.
Local Tourism Development Planning.
overnance, Subchapter 11-E. Shared Responsibilities Of National And Local Governments, SECTION 37.
Local Tourism Development Planning.
3
RA 9593, Chapter II. Tourism Governance, Subchapter 11-E. Shared Responsibilities Of National And Local Governments, Section 35. Coordination
between National and Local Governments.
4
DOT and JBIC, 2007. Sustainable Tourism Management Plan for the Central Philippines. Final Report.
5
RA 9593, Chapter II. Tourism Governance, Subchapter 11-E. Shared Responsibilities Of National And Local Governments, Section 41. Local Government
Capabilities Enhancement.
6
RA 9593, Chapter II. Tourism Governance, Subchapter 11-E. Shared Responsibilities Of National And Local Governments, Section 42. Tourism Officers.
5) Financing the Tourism Development Plan guides you to outsource funds from public
and private sectors to finance the ranked tourism project and show the importance of
writing an effective tourism project proposal.
7) Managing the Impacts of Tourism helps you identify and analyze the positive and
negative impacts of tourism and teaches you how to manage the impacts by enhancing
the positive and minimizing the negative impacts.
8) Developing Tourism Products and Marketing the LGU Destination aids you in
understanding how tourism products are developed and promoted to attract visitors. It
will also orient you on tourism marketing and promotions techniques.
10) Organizing a Local Tourism Office helps you understand the legal framework in
organizing a local tourism office as it also suggests possible roles and functions of a local
Tourism Officer.
11) Relevant Laws, Policies and Tourism-related Literature presents relevant laws, policies
and tourism-related literature. It also presents web links on tourism-related laws and
policies as well as on development planning, the environment, gender and other issues.
xi i i
Annex A: Work Plan Worksheet 33
Annex B: Site/Attraction Evaluation Worksheet 34
Annex C: Site Prioritization Worksheets 36
Annex D: Site Prioritization Evaluation
Summary Worksheet 43
Annex E: Site Prioritization Ranking Worksheet 44
Annex F: Problem Identification Worksheet 45
Annex G: Tourism Goals, Targets And Success
Indicators Worksheet 46
Annex H: Swot Analysis Worksheet 47
Annex I: Scenario-Planning Worksheet 48
Annex J: Tourism Circuit/Cluster Worksheet 49
Annex K: Project Identification Worksheet 50
Annex L: Worksheet For Program, Projects
And Activities Identification Within Circuits 51
Annex M: Monitoring And Evaluation
Strategy Worksheet 52
Annex N: Tourism Plan Implementation
Monitoring Worksheet 53
xiv
List of Examples
Example 1: Executive Order Creating the Local Tourism Planning Committee
Example 2: Work Plan
Example 3: Site/Attraction Evaluation of Chocolate Hills
Example 4: Site Prioritization Scores Per Category
Example 5: Site Prioritization Evaluation Summary
Example 6: Site Prioritization Ranking
Example 7: Problem Identification Matrix
Example 8: Problem Tree Analysis: Destruction of Primary Tourism Resources
Example 9: Link Between Goals and Objectives
Example 10: Scenario Building of the Pamilacan Island Dolphin and Whale Watching Organization
Example 11: Scenario Planning for PIDWWO
Example 12: Tourism Goals, Targets and Success Indicators
Example 13: Sector Goals, Objectives, Targets and Success Indicators
Example 14: Objectives Analysis: Primary Tourism Resource (Coral Reefs) Protected.
Example 15: Translating Problems into Objectives
Example 16: Sebay Central Resort Price-based Strategy
Example 17: Turtle Surf Camp Differentiation Strategy
Example 18: Davao City Hybrid Strategy
Example 19: The Province of Bohol Focus Strategy
Example 20: The Bohol Countryside Tour
Example 21: HIPADA Eco-cultural Circuit, Province of Surigao del Norte
Example 22: SWOT Analysis as a Tool for Strategy Formulation
Example 23: Relationship of Goals and Objectives
Examples 24: Identification of Tourism PPAs
Examples 25: Identifying PPAs Within Circuits
Examples 26: M&E Strategy
List of Tables
Table 1: Guide Questions to Tourism Planning
Table 2: Steps in Conducting Site Evaluation
Table 3: Steps in Problem Analysis
Table 4: Steps in Objectives Analysis
Table 5: Steps in Developing Tourism Clusters/Circuits
List of Boxes
Box 1: Local Tourism Council
Box 2: Scenario Building Options
Box 3: Components of a Tourism Cluster/ Circuit
Box 4: Recommended Contents of the Tourismm Development Plan
List of Figures
Figure 1: Problem Analysis: An Example
Figure 2: Link between Goals and Objectives
Figure 3: Tourists Entertained by PIDWWO from 2003-2010
Figure 4: Sample Objectives Analysis
Figure 5: HIPADA Eco-Cultural Circuit, Province of Surigao del Norte
WHEREAS, local governments are mandated by the Local Government Code of 1991 otherwise known as R.A. 7160
to develop and promote tourism and the general welfare in their respective jurisdictions;
WHEREAS, DILG Memorandum Circular (MC) No. 95-162, encouraged Local Chief Executives (LCEs) to organize
Tourism Councils in their jurisdictions, composed of government and private sector representatives to formulate
programs and recommendations to develop local tourism facilities and attractions tapping local resources and
funds;
NOW, THEREFORE, I (Name of Governor/Mayor), Governor/Mayor of the Province/City/Municipality of__________,
by powers vested in me by law, do hereby order the creation of the Tourism Planning Committee.
IV. Funding. The budgetary requirements for the conduct of activities and delivery of outputs shall be
sourced from __________________________.
V. Effectivity. This Executive Order shall take effect immediately.
(Signature)
(Name)
Governor/Mayor
1. Conduct tourism
Venue
training/workshop
Training/workshop LPDC Meals March 3 - 5
for planning
Accommodations
committee
Tourism Officer/
2. Data gathering Baseline data March 6 - 31
Planning Officer
Transportation
3. Site/Attraction
Meals
Evaluation and Ranked list of attractions Site evaluation team March 6 - 31
Venue for prioritization
Prioritization
session
Problem Analysis
3. Situation Analysis Team leaders of groups April 1 - 11
Objectives Analysis
Venue
4. Planning Workshop Draft elements of the plan Tourism Officer Meals April 23 - 25
Accommodations
5. Finalization of
Goals, objectives and
Goals, objectives Team leaders of groups Meals May 2 - 15
strategies
and strategies
6. Identification of
programs, projects, PPAs Team leaders of groups Meals May 16 - 30
and activities (PPAs)
Destinations apply to a variety of spatial scales – a country, region, local, to an individual attraction or site (Davidson
and Maitland, 1997, Dredge and Jenkins, 2007). In this Guidebook, we define the destination as either a province
or a city/municipality. It is highly beneficial to plan, promote and market the whole province as a destination
than for individual municipalities/cities to sell their areas individually. A destination needs to have a critical mass
of tourism development – offering a rich variety of diverse attractions and services to meet the needs of several
market segments (Gunn, 1984). Planning for individual attractions, no matter how well done, falls short if it is not
related to the planning of the whole destination. The final tourism product is the totality of the tourist experience
(Ibid), so that it is important to plan the province as a destination.
The participation of local or host communities that will be affected by tourism development is
important early on in the planning process as it drums up support for the industry and minimizes
resistance for any future project in the area.
As the Tourism Planning Committee goes through the different stages of tourism development plan formulation
process, it is essential to be guided by the following questions.
Identify programs, projects and activities What will you do to implement your strategies?
Planning must deal with all components of supply and ensure that these work in sync to provide a pleasing and
memorable experience to travelers (Gunn, 1979). Gathering and analyzing past and present information need to
be undertaken for evidence-based tourism planning.
Site Evaluation
Determining areas that have the greatest potential for tourism is critical for tourism planning. Evaluation is the act
of conducting on-site investigation of criteria items using appropriate methodologies such as direct observation,
mapping, oral interviews, questionnaires, focus group discussions, and workshops (Sugaya, 2013).
The Tourism Planning Committee should go through the process of evaluating and ranking sites to determine
their potential and readiness for tourism. The Committee can also benefit from the expertise of people who have
experience in site evaluation. Whenever possible, the Committee can invite experts to join on-site evaluation. The
output of the process is a ranked list of sites for development.
Follow the step-by-step guide below in conducting the site evaluation. You may find the pull-out worksheets of
the Attraction/Site Evaluation, Site Prioritization Scores Per Category, Site Prioritization Evaluation Summary and
Site Prioritization Ranking in Annexes B, C, D and E respectively.
After all the sites are evaluated and given scores, the team proceeds to
accomplish the Site Prioritization Worksheet. Example 4 shows partially
accomplished worksheet. This is done for all categories. A complete set of the
worksheets is found in Annex C. The categories include Uniqueness and Natural Site Prioritization Scores
Step 2
Beauty (Annex C.1), Historical/Cultural Value (Annex C.2), Accessibility (Annex Per Category
C.3), Availability of Basic Utilities (Annex C.4), Availability of On-Site Facilities
(Annex C.5), Ownership of Property (Annex C.6), Quality of Sorroundings (Annex
C.7).
Instructions: If the site possesses the given characteristics to the highest degree, this is given
a value of 5, while site possessing least/none of the characteristics is given a value of 1.
Criteria 3. Accessibility
Characteristics Least Most
Accessible all year (please specify vehicle type: all kinds of vehicle) 1 2 3 4 5
Regular/Commercial transport service available 1 2 3 4 5
(The maximum acceptable travel time from the service center is two hours; while from the town center is thirty minutes.)
Site 2
Site 3
Site 4
Site 5
Chocolate
18
Hills
Site 1
Site 2
Site 3
Site 4
Site 5
Chocolate Hills 98 1
Site 1
Site 2
Site 3
Site 4
Site 5
You may also refer to Example 7 to guide you in filling out the worksheet.
Site/ Attraction/
Component Problems/Issues
Circuit
Environment
• Natural
Solid waste is not managed; Improper waste
• Social
disposal
• Economic
Note: The problems/issues identified are for instructional purposes only, and may not necessarily reflect the real situation of the site.
Step 4 Identify the effects of the problem and position them above the problem.
It is difficult to accomplish anything without a plan. A necessary step in planning is to identify goals and objectives
for tourism. Simply put, goals and objectives are statements of what you want to achieve in the future or your
desired results for developing tourism. Identify only a few goals (2-3 may be sufficient, although you can develop
more if you have to), refer to them often and use them to guide you in succeeding steps so as not to get sidetracked
with strategies and programs that do not contribute to their achievement.
The most obvious tourism goals are economic in character. However, your goals must go beyond increasing
tourist arrivals and profit making. Balancing economic, social, and environmental goals are important in tourism
planning. Setting goals to conserve, protect and rehabilitate the natural environment is especially important since
most tourism is highly dependent on the state of the natural resource of an area.
In tourism planning - you have to be clear about the results you want to achieve. Both goals and objectives are
results of implementing strategies and actions. As a guide, the team can ask the question “why are we doing these
strategies or actions?” Goals tell us what we want to achieve in the long term (i.e. nine years and above), while
objectives tell us what we want to achieve in the short to medium term (i.e. three to six years). Clarifying tourism
goals and objectives helps the Tourism Planning Commitee focus on a set of interventions that best contribute to
their realization.
What do we Goal:
want to Increased tourist
achieve in arrivals
the long
term?
What do we
want to Objective 1: Objective 2: Objective 3:
achieve in
the short to
Improved access
to tourism
+ Improved quality
of tourism
+ Improved
tourist facilities
medium attractions products and services
term?
Tourism goals should not divert but rather contribute to the sustainable development of the locality. Tourism,
although part of the economic sector, must cover the three sectors, namely: economic, social and environment.
Tourism should make a major contribution to improving living conditions of communities within or near attractions.
In identifying goals and objectives, the well-being of host communities need
to be taken into account.
Success Indicators
Success indicators (SI) measure the extent of achievement of desired results. They are needed for both goals
and objectives. They measure performance qualitatively or quantitatively. There is a need to develop measures
that matter – those which provide and deepen stakeholders understanding of success and progress in the
implementation of the plan. As a guide, the question that needs to be answered is: what information will provide
stakeholders with a good understanding of the performance in tourism?
One has to consider the ease of gathering data in identifying success indicators. Indicators need to be simple and
easy to measure. If the data requirements for a particular indicator are difficult to obtain or not cost effective to
gather, a proxy indicator that can perform the same function can be chosen. In Example 12 for instance, one can
opt to use the indicator for E1 instead of E3.
Targets
A target is an explicit and definitive statement of a result (goal or objective) you want to achieve. It answers the
question: what do you want to achieve concretely and when will it be achieved?
Baseline Data
Baseline data show the situation to be addressed by the tourism development plan prior to the planning period.
For tourist markets, it is advisable to establish historical data for at least three to five years. Historical data answer
the question: Where have you been? The data is useful in planning ahead. Supplemental Reading 1 - Profiling the
Tourism Industry presents a more detailed discussion on baseline data. Baseline data need to be gathered from the
onset – they serve as the starting point for scenario building and can also later be used in evaluation studies, and are
useful for measuring the performance of the tourism industry, as a whole.
Scenarios are defined as “narrative descriptions of potential futures that focus attention on relationships between
events and decision points” (Slocum, 2005). Scenario building helps establish the effects of strategies and
interventions (i.e. programs, projects, activities, and policies) and
consequences of current trends.
Scenario construction is useful in situations where the past or present is unlikely to be a guide for the future,
specifically when:
Building scenarios should be well-informed so that realistic futures can be developed. In identifying
trends, it is important to base your assessment on evidence rather than supposition. Ensure that trends
are built on sound foundations (Mindtools, 2014).
A community-based approach to ecotourism was introduced in Pamilacan Island in 1997 to provide fishers with an
alternative livelihood after whaling and poaching was banned in 1992. The whale and dolphin tour was initiated in
1998, a year after the Pamilacan Island Dolphin and Whale Watching Organization (PIDWWO) was formed. It has been
considered as best practice in sustainable tourism management (Heah, 2006), and has also been recognized both
locally and internationally. The World Travel & Tourism Council (WTTC) acknowledged Pamilacan’s Dolphin Watch as
finalist in the 2006 Tourism for Tomorrow Awards at the 6th Global Travel and Tourism Summit for the Conservation
Award Category. Tourism for Tomorrow Awards recognizes and promotes best practices in tourism development all
over the world. In 2001, the number of tourists engaged in whale watching was 260 (Baclayon MPDC, 2001). Tourist
arrivals in the island slowly increased from 2003 to 2006, with PIDWWO, being the sole provider of the dolphin and
watch tour. While tourism arrivals in the island have been increasing, PIDWWO tour sales have decreased in 2007 and
2008, recovering slightly from 2009 and 2010 (Paran, 2013).
Tourist arrivals in the island has been Intensifying competition Increased number of tourists Diversify ecotourism
increasing but PIDWWO has been from private sector in entertained by PIDWWO by products to be offered by
losing out to competitors from Bohol Bohol Mainland 100% from its 2010 level by PIDWWO
mainland and Panglao 2016
Social media and the Invest in marketing through
PIDWWO product has been mainly internet is becoming an social media and the
whale and dolphin watching increasingly important internet
marketing medium for
Barangay government has accredited tourism
members of the Pamilacan
community as snorkeling guides
of marine sanctuary
Example 12 shows targets and success indicators per tourism goal. Example 13 on the other hand illustrates more
examples of goals, objectives, targets and success indicators.
Significant cultural heritage sites At least two significant cultural Number of cultural heritage sites
En1
conserved heritage sites protected by legislation
Economic
Improved tourism skills of host 50% of host community trained in Number of trained community
Objective
community tourism members (male and female)
Increased number of 100% increase in the number of Number of new tourism business
tourism-related businesses tourism businesses owned by permits issued by LGU
owned by community community members
Environment
Significant cultural heritage sites At least two significant cultural Number of significant cultural
Goal
conserved heritage sites heritage sites protected by
legislation
Cultural heritage sites adapted At least three sites adapted to modern Number of cultural heritage sites
Objective
to modern use use adapted to modern use
Social
Improved well-being of island host 50% increase in access to electricity Number of households with access
Goal
communities of island host community from 2012 to electricity in the island
baseline by 2022
Both the PA and OA are highly participatory instruments that allow the planning team to scrutinize and discuss
issues and concerns affecting tourism in their localities. Stakeholders collectively probe deeper into what ails
tourism in their areas using a problem tree and objective tree. Well-articulated problem statements are important
starting points to identifying actions that are appropriate to their situations. The step-by-step guide to objectives
analysis is shown below.
Taking off from the problem analysis, convert the negative statements/conditions into positive.
Step 1
Form a structure showing the means-ends relationships in the form of an objectives tree.
Step 2 From the positive conditions, identify goals, objectives, programs, projects, activities and policies.
Step 3 Review the diagram as a whole and verify its validity and completeness. Revise the statements as necessary.
Goal
Increased tourist arrivals
Objectives
Primary tourism resource
(coral reefs) protected
Development of Development of
ordinance banning diving, snorkeling, and
destructive and poor boating protocol
fishing practice
Development of
ordinance establishing a Solid Waste
PPAPs
septage management Management Program
system
Development of
ordinance establishing Liquid Waste
a solid waste Management Program
management system
Algal bloom
Development of ordinance
Destructive fishing banning destructive and poor
fishing practice
Note: Matrix form of the PA and OA example (see Example 8 and Example 14).
Strategies
Strategies are means to achieve goals and are undertaken to gain competitive advantage over rivals (Tribe, 2005).
“Strategy is the direction and scope of an organization over the long term: which achieves advantage for the
organization through the configuration of resources within a changing environment, to meet the needs of markets
and to fulfill stakeholders expectations (Johnson and Scholes, 2001: 10 in Tribe, 2005)
The tourism products to be offered by a destination can be underpinned by a strategy (Dredge and Jenkins, 2007).
A well researched and realistic tourism strategy can be a very effective tool to the advantage of residents, their
environment, and the tourism industry in general (Davidson and Maitland, 1997). An effective strategy can result
in the attainment of objectives such as increased number of tourists at a destination or improved well-being of
host communities.
There are a number of steps in the development of strategy. These are (Tribe, 2005):
A number of key strategic options can be generated from strategic analysis. This can be done by
selling a product that is:
Choosing a particular strategy should be done in an objective manner. This can be done by using a
set of criteria, such as feasibility, suitability and acceptability (Tribe, 2005).
“The attraction of a destination arises from a mix of resources and services. Without such a mix, a place
will not work as a destination. The mix varies from one place to another, and this variation gives each
destination its individual character – its different total tourism product.”
The Sebay Surf Central Resort tries to gain competitive advantage by offering the lowest prices for a surfing tour
package in La Union. The table below shows the budget prices for a package of one-hour surfing lesson with
instructor, surf board rental, and 3 days/2 nights standard air conditioned room accommodation with breakfast.
Number of Persons
No. of Persons 2 3 4 5 6 7 8 9 10
San Juan Surf Resort 3740 3474 3520 3370 3065 3119 3724 3421 3508
Sebay Surf Central Resort 3400 2720 3200 2816 2400 2743 3150 2800 3024
Little Surfmaid Resort 3740 3173 3520 3200 2800 3086 3525 3173 3360
Kahuna Beach Resort 7120 6521 6675 6338 5705 6005 6397 6265 6475
Note: Rates are quoted per person based on the number/group of persons indicated. Rates are in Philippine Pesos.
Differentiation Strategy
Getting ahead in the tourism sector entails creativity and inventiveness. A differentiation strategy can be employed
to offer something that stands out – a better quality or unique product. This can be done through a number of
ways which includes, among others investing in design, innovation, attention to quality, and advertising (Tribe,
2005).
Consumer perception is important in tourism. As a guide, one can ask: Does the tourism product or service offer
improved quality or value added over the competition? (Tribe, 2010)
The development of destination themes which feature the unique tourism resources of the locality is a good exam-
ple of a differentiation strategy. The Turtle Surf Camp in Siargao which “offers accommodation, surf lessons and
surfari trips to all individuals, couples or groups” shows innovation and creativity making the package stand out.
The all-inclusive vacation package which provides “hassle free stay” provides value added over other competitors
offering the components separately.
Similarly, province-wide themes showcasing the unique features of the locality and offering them as a packaged
tour product can make a good strategy.
The collaborative efforts between the Davao LGU, the malls of the city, and the Department of Tourism Region XI
to offer the lowest retail prices in a city-wide sale is a good example of a hybrid strategy. The endeavor is geared
towards establishing the City as a unique, fun and preferred shopping and dining destination in the country and
improving the image of Davao as a thriving destination for business and investment. Dubbed as The Big Davao
Fun Sale!, the City takes a big tourism leap as it plays host to the first ever four-week long shopping frenzy in the
Philippines with its major malls offering fantastic deals like unique activities, freebies, awards, parties and discounts
as high as 80%. The event marks the start of the festivities to celebrate the inauguration day of the City.
Focus Strategy
The LGU can make use of a focus strategy and customize products and services for a particular market segment
rather than to the whole market. A focus strategy may take the form of cost focus or differentiation focus (Tribe,
2005).
The Province of Bohol has opted to develop its locality as an ecotourism destination. Community-based ecotourism
organizations in the province have established their market niche and have developed ecotours such as dolphin
and whale-watching in Pamilacan Island in the Municipality of Baclayon, the Cambuhat River and Village Tour in
Buenavista, the Candijay Mangrove Adventure Tour, in Rajah Sikatuna, and a variety of adventure tours in Rajah
Sikatuna National Park.
Cluster Strategy
Cost is one of the factors which affect the choice for a holiday destination. More important than cost, however is
value for money. Tourists want to go home feeling that the price they paid was fair for the quality or standard of the
goods or services they purchased, or for how good or unique an experience was (British Tourist Authority, 2003).
Clustering increases the economic viability of attractions, and offers the tourist value-for-money destinations.
Compatible attractions can be clustered by physical feature or by tour. A good example of clustering attractions
by tour is the Bohol Countryside Tour.
“…a destination with high tourism potential is certain to bring together, within a cohesive geo-spatial framework,
an ample range and variety of complementary tourism assets. The precise range of facilities, services and attractions
within easy access of one another, will depend on the place.”
-Doswell, 1997
Entrepreneurs of Bohol have succeeded in coming up with a tour package by clustering compatible attractions. Since
its test run, it has become a favorite of tourists visiting Bohol. Several businesses now offerred the tour with some
variations but with major attractions being included in the package. The day tour spans several municipalities in the
province and the package includes entrance fees, land transfers, tour guide, river cruise, and lunch during the river
cruise. Pick-up and drop-off points are pre-arranged but usually are from Tagbilaran seaport, airport, or major hotels.
The following is a sample itinerary:
Blood Compact Site (Tagbilaran City) – Cultural attraction which showcases the spot where the Spaniards and the
Filipinos fostered friendly relations through the ritual of blood compact.
Baclayon Church (Baclayon) – Considered as one of the oldest stone church in the Philippines with a museum that
contains religious relics dating back to the early 16th century.
Loay Backyard Industry (Loay) - Local craftsmen are seen forging bolos and other metal crafts; and making traditional
roofing materials out of nipa palm leaves.
Clarin Ancestral House (Loay) - Declared by the National Historical Institute as a heritage site, the well preserved home
contains collections of the Clarin Family.
Tarsier (Loboc) – Sightings of the smallest monkey in the world along the Loboc River.
Chocolate Hills (Carmen) – A major attraction in the province, the attraction has 1,268 haycock hills which turn brown
during dry season.
Loboc-Loay River Cruise (Loboc) – Lunch is served while cruising the river, with locals providing local music. The river
is flanked with nipa palm plantation with the occasional wild ducks.
Moreover, clustered attractions are more efficiently serviced with infrastructure of water, waste disposal, police, fire
protection, and power (Gunn, 1979).
The linkage between attraction-services is important. Attractions need support by travel services. Park plans,
for example, are incomplete if the non-attraction needs of travelers are ignored. Food service, lodging, and
supplementary services (i.e., purchases of medicines and souvenir items) must be within reasonable time and
distance reach of travelers. A number of attractions (i.e., protected areas) need to be planned for day-tour only,
with majority of services available in nearby communities where they can be serviced more efficiently. This results
in gain for local businesses. More remote attraction features, however, may require minimum services within the
attraction, such as food service, toilets, and visitor centers (Gunn, 1979).
Tourism Circuits
Box 3
Components of a Tourism
Cluster/Circuit
A popular version of the cluster strategy is the tourism circuit. The cluster/circuit comprises
Attractions within the circuit should not be separated by long the following key components:
distances. A visitor should be motivated to visit all the places within the
• Set of compatible attractions
circuit.
• Enroute facilities such as
restaurants, restrooms, etc.
Tourist circuits are used as a strategy to increase the total number of
• Transport infrastructure
visits to all the destinations within the circuit as well as provide tourists
and services
with a more rewarding experience and value for money by providing a
• Service center which
mix of attractions and activities in a destination.
provides accommodations,
and other needs of the
Develop principal packages based on distinctive elements of the
tourist
destination, and the market which you want to attract (e.g., adult,
family or short-stay market as against long- stay market).
Steps Activities
Identify secondary sites/attractions. Secondary sites/attractions (e.g. cultural) may or may not be developed
depending on resources, potential and other objectives set in the plan.
Step 2 • These attractions are of the type that can be located elsewhere
• Usual approach is to develop secondary attractions near a major attraction so that the area is of greater
overall importance to the tourists
Create possible circuits, based on the location of your sites. In developing circuits, make sure to consider how
Step 3
sites are related in terms of geography, access and travel time. Identify the entry/exit points.
Step 7 Identify those which can be developed in 0-3 years, 4-6 years, and 7- 9 or more years.
Step 8 Create a summary report of your circuits using the Tourism Circuit/Cluster Worksheet in Annex J.
Example 21 presents an eco-cultural-tourism circuit. The circuit components include the entry/
exit points, attractions, service centers and transport infrastructure and services.
Developing strategies using the SWOT entails research, creativity and experimentation on the part of the Tourism
Planning Committee. Strategies are place specific and depend on the distinctive situation of the locality. Strategies
that work for some areas may not happen as expected for your locality. Also, strategies that have not worked in
the past should be withdrawn. An example of a SWOT analysis is shown in Example 22 while an example of the
relationship between goals, objectives and strategies is presented in Example 23.
Increased income of host island Improved tourism skills of host island Develop community-based ecotourism
communities community packages for small islands
Planning helps stakeholders focus the use of limited resources on priority actions (programs, projects and activi-
ties) that can best contribute to desired results.
Programs and projects are classified as ‘soft’ or ‘hard’. Developing successful tourism destinations combines soft
(e.g. marketing and promotions) and hard programs (e.g. infrastructure) in a creative manner. All program and
projects however need to be linked with all other components in a smooth manner, with each development
contributing to the overall attractiveness of the destination.
Tourism programs and projects can be simple or complex. A one-off training project to improve the capacity of
the tourism planning team is an example of a simple project. The project becomes more complicated when one
undertakes a capacity building program which includes various components such as a series of training activities,
to setting up the tourism office.
The project identification matrix can help you align your programs, projects and activities with the goals, objectives
and strategies of your tourism plan. An example of this is provided in Example 24.
Increased number of
tourism-related businesses • Homestay program
owned by host island • Microcredit program
community
If the LGU has identified several circuits for development, it is more prudent for the LGU to develop them in stages.
Tag circuits can be developed in the short (0-3 years), medium (4-6 years) and long term (7-9 years). The timetable
for development can be included as criteria for choosing priorities.
You may find the pull-out Worksheet for Programs, Projects and Activities Identification within Circuits in Annex L.
You may also refer to Example 25 to guide you in filling out the worksheets.
Notes:
1. See the complete Bohol Countryside Tour in Example 20.
But it is not enough that the plan is formulated. How would you know if the local TDP was able to achieve itsgoals
and objectives? It is thus important that a monitoring and evaluation mechanism must be put in place.
Monitoring and Evaluation (M&E) is a management tool that informs all tourism stakeholders about the efficiency
and effectiveness of strategies, programs, projects and activities that have been implemented in the destination.
Evaluation results can be useful in replicating successes and correcting mistakes, and can also serve as an
accountability and learning tool for local government units.
The development of an M&E strategy should not be an afterthought, but should be undertaken as an integra
part of the planning phase. The M&E mechanism serves as the perfect ending for your local TDP, which starts with
goals and proceeds up to programs, projects and activities. See Example 26 below as well as worksheets found in
Annex M (Monitoring & Evaluation Strategy Worksheet) and Annex N (Tourism Plan Implementation Worksheet).
Meanwhile, Supplemental Reading 6 - Monitoring and Evaluating the Tourism Development Plan further explains
M&E.
Increased number Number of 100% increase in Business Permit Document Every three Local Planning and
of tourism-related business permits number of tourism and Licensing review years Development Office
businesses owned issued by LGU related businesses Office and Tourism Office
by host with owners from owned by
community host community community
Naming your plan is also an important concern in packaging. A name describes and provides an identity to your
plan document. For example, the Province of Surigao del Norte named its document “Surigao del Norte Sustainable
Tourism Plan,” demonstrating the principle that guided the planning team in developing the plan.
Another important concern is the contents of the tourism plan. More often than not, local government units put
too many information in the document, which can make it thick and confusing. The rule is to make the document
as concise as possible. Below are the recommended contents of the tourism plan:
Davidson, Robert and Robert Maitland. Tourism Destinations. London: Hodder and Stoughton, 1997.
Dredge, Dianne and John Jenkins. Tourism Planning and Policy. Milton:
John Wiley & Sons Australia, Ltd, 2007.
Goeldner, Charles and J.R. Brent Ritchie. Tourism: Principles, Practices and Philosophies.
New Jersey: John Wiley and Sons, Inc., 2009.
Gunn, Clare A. “Conclusions and Principles.” In Tourism Planning. New York: Taylor and Francis, 1988.
Gunn, Clare A. “Getting Ready for Megatrends in Travel Attractions.” Paper at the Travel America National
Conference and Showcase, Travel Industry Association, Dallas, September 13, 1984.
Gunn, Clare A. Tourism Planning: Basics, Concepts, Cases. London: Taylor & Francis, 1979.
Pabalan, Concepcion, Julie Paran and Imelda Caluen. A Facilitator’s Guide: How to Formulate Executive
and Legislative Agenda, 2004. Philippines-Canada Local Government Support Program (LGSP)
Paran, Julie. The Nexus between Ecotourism, Empowerment and Sustainable Development: A Case Study
of Pamilacan Island. (Doctoral dissertation). 2013
Pender, Lesley and Richard Sharpley. The Management of Tourism. London, SAGE Publications Ltd., 2005.
Rose, Edgar A. “Philosophy and Purpose in Planning.” In The Spirit and Purpose of Planning, edited by
Michael J. Bruton, 31-65. London: Hutchinson, 1984.
Ruhanen, Lisa. “Strategic Planning for Local Tourism Destinations: An Analysis of Tourism Plans.”
Tourism and Hospitality Planning & Development. Routledge, 2004.
Sugaya, Bill. THL Tourism Site Assessment Tool. Tibetan and Himalaya Library.
https://collab.itc.virginia.edu/wiki/toolbox/Thl%20Tourism%20Site%20Assessment%20Tool.html. 2013.
Tribe, John. “Unit 8: Strategic Directions and Methods.” In Strategy for Tourism. Oxford: Goodfellow
Publishers, 2010. http://www.goodfellowpublishers.com/free_files/fileCh8v2.ppt2.ppt.
Tribe, John. “Strategy for Tourism.” In The Management of Tourism, edited by Lesley Pender
and Richard Sharpley. London: SAGE Publications Ltd., 2005, 119-134.
Yeoman, Ian, Doug Pearrce and John Moriarty. Future Maker or Future Taker: Scenarios for Tourism
in New Zealand. N.d. http://www.med.govt.nz/sectors-industries/tourism/pdf.
33
Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Province/City/Municipality ____________________________________________
Site/Attraction ____________________________________________
Site Classification ____________________________________________
(Existing/Emerging/Potential)
Travel Time to
____________________________________________
to
____________________________________________
Instructions: If the site possesses the given characteristics to the highest degree, this is given a value of 5, while
site possessing least/none of the characteristics is given a value of 1.
Criteria 3. Accessibility
Characteristics Least Most
Accessible all year (please specify vehicle type: all kinds of vehicle) 1 2 3 4 5
Regular/Commercial transport service available 1 2 3 4 5
(The maximum acceptable travel time from the service center is two hours; while from the town center is thirty minutes.)
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Built Heritage
Culinary
Site/Attraction Location (50 years and Festivals Museum Total
Experience
above)
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Regular/ Com-
Site/ Accessible all mercial Transpor- Distance from Distance from
Location Total Points
Attraction year tation Services Service Center Town Center
Available
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Privately Ancestral
Local
Site/ Owned/ Under CARP With Tenants/ Domain/ Total
Location Government
Attraction Managed/ or CARPable Residents Land Points
Owned
Leased Claimants
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Presence
Site/ Landfill/ Informal Beautiful Total
Location Mining Site of Support
Attraction Dumpsite Settlements vista/view Points
Service
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Economic
E1
E2
E3
E4
Social
S1
S2
Environment/ Ecological
En1
En2
En3
En4
En5
En6
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
STRENGTHS WEAKNESSES
Opportunities Threats
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Annex I: Scenario-Planning
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Circuit Theme:
Duration:
Target Market:
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Timeframe for
Name of Circuit Issues and Concerns Programs and Projects
Development (in Years)
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Tourism Guidebook for Local Government Unit Formulating the Local Tourism Development Plan
Data Source to
Goals & Success Targets per Collection
Assess Frequency Responsibility
Objectives Indicator Indicator Methods
Performance
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Tourism Guidebook for Local Government Units Formulating the Local Tourism Development Plan
Programs, Outcome/
Beneficiary Coverage Project Actual
Projects, Output Target Accomplishment Remarks
Sector Area Cost (Php) Disbursement
Activities Indicators
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