Community Participation: An Approach towards Inclusive Tourism

Development in India
Harsimran Chadha
hsimranchadha@gmail.com
Preeti Onkar
ompreeti2005@yahoo.co.in
Maulana Azad National Institute of Technology, Bhopal, India

Abstract
The impact of Community-Based Tourism planning and development has previously been seen only with
reference to social and cultural conservation of local communities’ livelihoods. While half of those advocating
for this phenomenon accept the importance of community participation in the tourism and its related outcomes,
many others doubt this thought and challenge the advantages which the community based tourism can offer for
the local development. This paper is more oriented towards elaborating the two way process of how community
participation can enhance tourism in the areas having tourism potential, and how this tourism in turn can help in
the local community development. An attempt has been tried through this paper to outline the elements of
inclusiveness and to link them with the standard process of tourism planning. The community participation in
tourism may serve as an ideal starting point to establish the settings for the initiation of a more inclusive tourism
planning process, having its positive implications in both the spatial-environmental as well as the socio-
economic planning and developmental aspects of an area. Its importance gets even more emphasized for the
developing countries like India where 32.7% of people fall below the international poverty line as per World
Bank 2010.
Keywords: Community participation; Inclusive; Tourism Planning and Development; Community based
tourism.

1 INTRODUCTION
In the contemporary times, tourism is taken into account as a very important phenomenon,
whose rising importance can be attributed in the process of revenue generated by the tourist
inflow and the chance for employment generation within the service industries directly or
indirectly associated with tourism. Globally, community based tourism (CBT) is
progressively gaining importance. The CBT isn't merely a business activity that aims at
increasing the returns for its investors. Rather, it is increasingly getting involved with its
impact on the social community and environmental resources. In the recent times, tourism
development is happening everywhere due to the rising penetration of the waves of
globalization. However, all the destinations are, initially, places of residence of native
population and hence a decent relationship between tourists and residents is very crucial for
promoting overall harmony within the entire region. Local participation can help to find a
balance between both parts by letting local people participate in tourism development.

2 OBJECTIVE AND METHODOLOGY ADOPTED

The primary objective of this paper is to study in depth and analyse the role and importance
of community participation, which is a prominent part of inclusive planning, in tourism
development.
The methodology selected is over-viewing of existing literature, and desk appraisal approach,
in which role of community involvement is primarily studied and documented.
3 CONCEPTUAL UNDERSTANDING OF THE TOPIC
Tourism in which the community plays a role goes by a great variety of names: 'Community
Based Tourism' (CBT), 'Community Based Ecotourism' (CBET), 'Agro tourism', 'Eco' and
'Adventure Tourism' and 'Home stay' are a few of the prominent terms.

3.1 Tourism
It is essentially travel for recreational, leisure or business purposes. The World Tourism
Organization defines tourists as people "travelling to and staying in places outside their usual
environment for not more than one consecutive year for leisure, business and other purposes".

3.2 Community Based Tourism (CBT)

Community Based Tourism is defined as “Tourism in which a significant number of local
people are involved in providing services to tourists and the tourism industry, and in which
local people have meaningful ownership, power and participation in the various tourism and
related enterprises”. Community participation in the development process is defined as
development designed in such a way “those intended beneficiaries are encouraged to take
matters into their own hands, to participate in their own development through mobilizing
their own resources, defining their own needs, and making their own decisions about how to
meet them”.
"CBT is tourism that takes environmental, social, and cultural sustainability into account. It is
managed and owned by the community, for the community, with the purpose of enabling
visitors to increase their awareness and learn about the community and local ways of life"
(REST,1997).

3.3 Inclusive Planning

The general meaning of inclusive is considering everything within its scope. Therefore
meaning of inclusive changes from place to place as per scope and limitations. In the year
1995 World Summit for Social Development (WSSD) in Copenhagen, the assembled world
leaders were called for fostering stable, safe and just societies where everyone would have
equal rights and can grow with access to services to contribute to the fullest of their potential.
This was the beginning of a new era in planning; inclusive planning; motto of which was to
‘include all in planning process’. The approach opened space for wide participation and
engagement with the planning process. The aspect of inclusive planning that is, perhaps, most
developed, and where most experience lies is the incorporation of local actors within disaster
preparedness, relief, and reconstruction process (Sharma, 2013).
Planning is a decision making process. An inclusive, action-oriented planning approach that
advocates the preparation of strategic development plans through a broad-based participatory
process (UN Habitat, 2007). Thus inclusive planning is a decision making process in which
people or communities are involved for preparation of their own plans and strategies.
3.4 Sustainable Tourism
Sustainable tourism is defined as any development that meets the needs of the present tourism
and host regions while protecting and enhancing opportunities for the future. It is envisaged
as leading to the management of all resources in such a way that economic, social, and
aesthetic needs can be fulfilled while maintaining cultural integrity, essential ecological
processes, biological diversity and life support system (World Tourism Organisation, 1998)
3.5 Community Participation: Importance
The need of community participation in tourism development and in others fields of activity
is a key element recognized by national and international organizations. It can not only help
in targeting the resources more effectively and efficiently, but can also directly involve the
people in the processes of planning, thereby allowing them to become more responsive to the
local needs. It can be further utilized to develop skills and building competencies within the
communities, which can allow new opportunities for creative thinking and innovative
planning and development (World Health Organization, 2002). Within the context of tourism
planning, community participation can be defined in the following way: “a process of
involving all [stakeholders] (local government officials, local citizens, architects, developers,
business people, and planners) in such way that decision-making is shared”.

4 LITERATURE REVIEW: ARGUMENTS FOR COMMUNITY BASED TOURISM

4.1 Thoughts on Community Participation by Different Researchers

Different researchers have different thoughts about community participation. Some affirm it
is a necessary tool to promote tourism while others want to ignore community-based tourism.
The thoughts of different people have been collected and discussed below.
White (1982) again outlined nine different arguments to support the importance and necessity
of community participation in the development process. He states that more will be
accomplished, services can be provided at lower cost, and participation has an intrinsic value
for participants. CBT is a catalyst for further development efforts and participation leads to a
sense of responsibility for the project. Participation ensures things are done in the right way
because it uses indigenous knowledge and expertise. It frees communities from dependence
on professionals.
Tourism can bring substantial benefits to local communities only if it is carefully planned,
developed and managed. Some important potential benefits that local communities could
consider are those identified by the World Tourism Organization (World Tourism
Organisation, 1998), are generation of new jobs for and by the local community;
empowerment of young people, women and local ethnic minority groups; establishment of
small, medium and micro local tourism enterprises, and provision of new markets for local
products such as agriculture, arts and handicrafts.
A study by Tosun and Timothy (2003) states that community involvement in tourism has
been widely supported as being essential for sustainability. It is emphasized from equity,
developmental and business management perspectives. This form of tourism focus on
community ownership and livelihood security, minimal leakages & backward linkages,
efficient conflict resolution, increase in the local population social carrying capacity, and
improved conservation.
Active local community participation in the management of tourism could provide the local
community with opportunities that make it possible for them to conserve their natural
environment and resources. In return for their participation (Mametja, 2006) expect that it
would help in maintenance of environmental resources; economic benefit to local community
and its empowerment; participation in the management of tourism activities; appreciation and
understanding of local cultures.
Another states that revenue from tourism reaching the communities is distributed by them, in
accordance with their wishes; either split between all the inhabitants equally, or invested in
infrastructure such as schools, roads, and clinics (Spenceley, 2008). The level and distribution
of benefits depends on many factors including the attractiveness of the tourism asset, type of
operation, nature and degree of community involvement, and whether earnings become
private income or are partly or wholly channelled into community projects or other benefit-
spreading mechanisms.
Swarbrooke, Timothy and Getz consider CBT in another way. It states the negative impacts
on tourism development and management due to community involvement. It claims that the
decision making required time increases, refusal to outsiders from accessing to employment
and business opportunities, increase of costs, time consuming and lack of preparation of
planners and critical understanding of local people (Sanchez, 2009).

Thus from the above discussion it can be considered that inclusive community based tourism
has multiple benefits. It works at grass root level and the benefit of planning approach can be
seen well in CBT.
4.2 Relationship between Community Based Tourism (CBT) and Community

Figure 1: Promotion of Community Development through CBT (adapted from CBT Handbook, REST)

COMMUNITY DEVELOPMENT

SOCIAL CULTURAL ENVIRONME- ECONOMIC POLITICAL

NTAL

People-centred Formal and Natural resource Income from Community

development: informal management local participation:
Dividing roles education: rights: Studying production: Enabling the
fairly between Encouraging the carrying Raising funds participation of
women/men, respect for capacity of the for community local people
elder/youth different area development
cultures Development in
Social Justice: Environmental Diversified local response to the
Promoting Local culture responsibility: economy: community
community passed on to the Managing waste Creating jobs in needs:
pride next generation: disposal tourism Increasing the
Fostering power of the
Satisfying cultural Natural resource Self-reliance: community over
quality of life: exchange conservation: Raising the the outside
Raising the Raising income of local
quality of life Cultural awareness of the people Democratization
Preservation: need for : Ensuring rights
Embedding conservation in natural
development in resource
local culture management

4.3 Development
CBT is intended as a tool for community development and environmental conservation. For
this reason, it is suggested to apply a "holistic" view, (i.e., one that encompasses a complete
inclusion of the political, social, economic, cultural and environmental development factors),
to the analysis of the community context. Social, cultural, environmental, political and
economic aspects have been stated as five principle aspects of community development.
Also, CBT and community development are inherently connected, because they share the
same natural and cultural resource. The five a fore mentioned principle aspects of community
development are promoted by involvement of healthy community participation, which can be
effectively facilitated by the CBT, thereby serving as a powerful tool for development as
described in Fig. 1.

4.4 Process of Local Participation

There are a few techniques, which answer the question of how planning policies of public
participation have to be implemented. Some guidelines are found in tourism literature. It is
worthy to highlight three models:
1. Model of local participation in the development of ecotourism projects (Drake, 1991),
2. Model of local participation in planning and managing tourism(Garrod, 2003) and
3. Prioritized steps for community involvement (Local Participation as a tool for tourism
Development in La Guajira, Colombia, 2009).
The Model of Local Participation in the development of Ecotourism (Drake, 1991)
determines the recommended stages of local participation as follows:
i. Determine role of local participation in the project
ii. Choose research team
iii. Conduct preliminary studies (pre-design stage)
iv. Determine level of local participation
v. Determine appropriate participation mechanism
vi. Initiate dialogue and educational efforts
vii. Collective decision-making
viii. Development of an action plan and implementation
ix. Monitoring and evaluation
Ten years later, Garrod et al., published an adapted model from the one made by Drake. Due
to trends in tourism and the new researches, which have gone further in the field of public
participation in tourism development, the latest model, the Garrod’s one, is the more suitable.
The model of Garrod et al. (2001) was developed initially for a marine ecotourism project so
applicability of this approach is limited (Garrod, 2003). The stages of this revised model of
local participation in planning and managing tourism is briefly described as follows:
i. Determine the appropriate participation mechanisms
ii. Undertake initial dialogue and educational efforts
iii. Create and/or reinforce support mechanisms
iv. Conduct preliminary studies
v. Collective decision making as to the scope and nature of tourism development
vi. Community-based development of action plan and implementation scheme
vii. Implementation
viii. Monitoring and evaluation
Another model of local participation is the one of Moscardo. This model is not oriented to a
particular type of tourism, as models above were oriented to ecotourism, but to a community-
based tourism development approach. Moscardo established some steps, grouped in three
priorities, in order to achieve community involvement. More than a formal framework these
are some guidelines as base for any local participation model (Moscardo, 2008).The
prioritized steps for community involvement as per this model were as follows:
i. Understand what resources the community can offer
ii. Get all people involved to work together
iii. Make community aware of costs and benefits of tourism
iv. Develop a tourism plan with clear goals and objectives
 v. Form organizational structure
vi. Get community input and support in tourism development
vii. Identify key leader to do the work
viii. Develop education and training program for community
ix. Get the leading institutions to give expert assistance to local people

5 CASE STUDIES FOR COMMUNITY PARTICIPATION IN TOURISM FROM

THE DEVELOPING WORLD
Although the Community Based Tourism has been practiced in India and several other
developing countries for the previous few decades, the gradual evolution of its contents, i.e.,
its planning, management and development, is a very recently acknowledged concept. Even
though the case examples show that it hasn’t worked considerably well within the Indian
context, it's very useful to understand the causes behind their failure for finding the locally-
appropriate future solutions, which can be proposed well and work efficiently under the given
context of Indian culture and society. For this objective, several cases are studied and
analysed during the preparation of this paper and four relevant examples are briefly discussed
over to highlight their summaries stating main aspects behind their success/failure. (Source:
Report on Community Involvement in Ecotourism in MP, Equations, 2010)

Case Study 1: Sundarbans Jungle Camp (SJC), Indo-Bangladesh Border, Asian Sub
Continent
The Sundarbans Jungle Camp, which comprises of mangrove forests, has got the status of the
UNESCO world heritage site. In response to the increased poaching activities in the
mangrove forests of Sundarbans, a tour operator (Help Tourism) and destination consultant
was approached by the Field Director of the Tiger Reserve and WWF-India, West Bengal for
developing a demonstration project based upon the principles of community based tourism.
It was one of the initial objectives of the collaborators that the advantages reaped out from the
program should be spread throughout the fabric of the local community. One of the methods
through which it was envisaged to fulfil the above objective was through the incorporation of
the local community members within the construction of the tourism-supporting
infrastructure. As a result, around 2000 people from the local community were engaged in the
construction program. Emphasis was also placed upon employing the construction material
obtained locally, which was about 70% of the total material used. Moreover, around 70% of
the total profits are utilized for the local development of the region. Also, there are some
community benefit schemes that have been initiated. But the very crucial aspect of
community participation in the SJC is through the higher involvement of the community in
most of the decision-making processes. All stakeholders collectively comprise the joint
decisions taking use of the technical input provided by the private entity. And the local
population is always informed and included at each stage throughout the implementation
phase, leading into a more inclusive and participative mechanism. Thus, the local people
conjointly have equal rights of decision-making in the everyday operations, management and
recruitment process.

Case Study 2: Pachmarhi Biosphere Reserve, Madhya Pradesh, India

Here the local community’s role in the overall decision-making process for the management
of resources as a part of the tourism development program for the entire Satpura region has
been very low. Aggravating the issues further, the displacement of the local population from
their original place of residence was another crucial problem within the existing conservation
framework of the Satpura National Park. Another vital issue was the non-renewal of fishing
licence of the locally run Tawa Matsya Sangh, which was a source of employment of a large
number of local population. While developing the proposed ‘Tourism Development’
measures, the interests of local population was entirely neglected and the proposals were so
formed as to make them feel excluded and marginalized from the overall developmental
framework. It has been repeatedly proven by these examples that the local community was
not taken into confidence by the concerned Forest Department and thus was not just kept
excluded, but also shoved away into exile from the reaps and benefits of the tourism
development program. Hence it can be considered as an example where complete negligence
of the interests of the involved stakeholders, i.e., the local communities, has been shown by
the government while planning and developing tourism in that region.

Case Study 3: Kanha and Bandhavgarh National Parks, Madhya Pradesh, India
In the case of the Kanha and Bandhavgarh National Parks, the instances of human-animal
conflicts have increased significantly due to the accrued wildlife population as a result of
declaration of these areas as ‘Protected Areas’. And since any preventive measure taken by
them would directly or indirectly imply their confrontation with the Forest Department,
which might result into the physical damage to their settlements or to their natural resources,
the local communities are unable to guard themselves against these increasing instances of
conflict. Further, selling their lands in the hands of the officials is also not a viable option for
them as the initial financial gain obtained from such a treatise isn’t sustainable in the long
run. Thus the absolute lack of community involvement or concern is evident in the nature of
tourism development in these National Parks.

Case Study 4: Mountain Shepherd Initiative (MSI), Uttarakhand, India

This initiative was a more developed outcome of the earlier social struggle movements for
reclaiming the land and forest rights like the popular Chipko movement of the early ‘70s, the
Jhapto Cheeno movements of late ‘90s and the Nanda Devi Campaign. Now it has evolved
into a private community owned enterprise, having several impacts on the communities.
Rural-Urban migration has significantly decreased by involving the community members
from the villages. One of the basic objectives of MSI was to ascertain a community-owned
operation having minimum negative implications like human and environmental exploitation
or degradation. This has resulted in the improvement of the tourist-resident relation. Instead,
the emphasis is more on treating the tourists as equals. A large part of the focus lies on the
bio-diversity conservation and protection and hence, all tourism activities are carried out in
such a way that the harm to the local environment is absolute minimal thereby conserving the
bio-diversity.
Comparative analysis of the above-mentioned case studies is presented below:
Table 1.Comparative Analysis of Case Studies (Compiled by Author)

Sunderbans Jungle Pachmarhi Biosphere Kanha and Mountain

Camp (SJC) Reserve Bandhavgarh Shepherd
National Parks Initiative (MSI)
Situated on the lower Satpura National Park, Madhya Pradesh, Nanda Devi
end of the Gangetic West Bori Wildlife India Biosphere
Bengal, India Sanctuary and Reserve (NDBR)
Location Pachmarhi Sanctuary in Uttarakhand,
form the Pachmarhi India
Biosphere Reserve,
MP, India
Established Constituted by GOI in Created on March 3, Kanha was created Established in
1989 and received the 1999 and in 2009 it on 1 June 1955. 1982, it was
recognition of UNESCO was designated a Bandhavgarh was inscribed a World
in November, 2001 biosphere reserve by declared a national Heritage Site by
UNESCO park in 1968 UNESCO in 1988

Mangrove forests and a National Park, Wildlife Protected Areas, Exquisite hillside
Salient UNESCO world heritage Sanctuary and dam on abundance of located on the
Features site river Tawa wildlife foot-hills of the
Himalayas
- Supporting - Poor involvement in - Total absence of - Reduced rural-
conservation, decision making community urban migration,
- Creating alternate process and in natural concern, - Increased bio-
livelihood, resources management, - Increased wildlife diversity
Extent Of - Countering exploitation - Multiple community population resulting conservation,
Community by mega tourism project, displacement, into increased man- - Good livelihood
Involvement - Community - Huge employment animal conflict and employment
involvement in the loss among the local generation,
construction of community and nil - Social
infrastructure benefits transfer to development of
stakeholders the community
Local community, Forest Department, Private fully a community
Agencies Help Tourism, Field government entrepreneurs, based and owned
Involved Director of the Tiger departments, MPTDC Govt. Departments ecotourism
Reserve and WWF-India, initiative
- Joint decision-making - Multiple - Increased chances - Economic,
by all stakeholders, while displacements of the of physical or social and
Help Tourism provides communities. resource harm to conservation
tech. input, - Acute loss of the communities objectives are
- Local community livelihood and both from the accomplished
Outcome always informed and employment animals and the successfully
involved in the government
implementation,
- Community
participation in day-to-
day operations
Successful attempt Unsuccessful attempt Fairly unsuccessful Very successful
Remarks
attempt attempt
6 FINDINGS AND DISCUSSIONS

6.1 From Literature Study

Looking at literature study, it is notable that among the advocates of participatory planning in
tourism development, (Murphy, 1985) formed the basis for many studies when it comes to
classic review of community participation. He recognized that experts couldn’t judge the
perceptions, preferences and priorities of host communities. Thus, the potential social
benefits can only be possessed by a transparent and community-oriented approach, which
understands the local image and views tourism as a local resource (Claiborne, 2010). Most of
the scholars find local participation positive for tourism development. However some of them
point out that it has disadvantages. In a practical way, there are some theoretical frameworks
related to the process of local participation and the degree of local participation. Literature
review further states that there remain many challenges for community participation. It is
evident that for community-based tourism to bring more benefits for locals, more interaction
is needed between them and the management. Increased local involvement and participation
will help to ensure that people are empowered and the conservation of social and natural
resources takes place.

6.2 From Case Studies

In first and fourth case studies, community is involved in various activities, so they are
examples of successful attempts. In second and third cases, community is hardly involved, so
they result into examples of insufficient success.

6.3 The Sustainability of Community – Based Tourism

The sustainability of natural and cultural resources depends on all the sectors involved
directly and indirectly in the tourism industry working together towards common goal. One
of the most widely accepted principles of sustainable tourism is the idea that tourism is only
sustainable if the local community is involved in tourism planning and management (Hall,
2000)(Harper, 1997)(Mametja, 2006). Major political, economic, social and environmental
issues need to be taken into account. On a local level, the community groups that may be
interested in participating in community – based ecotourism ventures in the rural areas would
comprise tribal authorities, community development forums, youth and women’s groups,
conservation groups and recreational clubs (Boo, 1993).The general logic is that in order for
this kind of tourism to work, the indigenous people must enjoy ownership of community-
based tourism. According to (Harper, 1997) the indigenous people are the ultimate protectors
of the natural and cultural heritage since they have close historical, cultural and spiritual ties
with the land, just as their ancestors did before them.

7 CONCLUSION & RECOMMENDATION

Using number of literatures and some desk appraisals, the paper has made an important
contribution to understand community participation in tourism with relation to the contextual
discussion. Study examined local communities’ participation in tourism development and its
mutual interdependency. It identified the significance of community participation from
literature that may have important implications for tourism policy design, and to
policymakers. Literature review ends with a discussion of possible approach for local
community participation with respect to three random selected models. Tourism encourages a
variety of cultural activities, and that meeting tourists promotes cross-cultural exchange. It
also creates employment opportunities and generates income. Local people should be
consulted when tourism policies are being made but formal bodies should make final decision
on the tourism development. But CBT cannot always be considered as an ideal solution for
resolving all the community issues. Moreover, a carelessly implemented CBT will give rise
to even more complex issues. Hence all developing countries should move towards complete
community participation in tourism development, after learning from the drawbacks of earlier
attempts of community involvement.

Local communities benefit from sustainable tourism through economic development, job
creation, and infrastructure development. Tourism revenues do bring economic growth and
prosperity to attractive tourist destinations, which can directly raise the standard of living in
destination communities. Sustainable tourism operators commit themselves to creating jobs
for local community members. Increase in the tourism revenue to an area acts as a driver for
the development of increased infrastructure. As demands of the tourists increase in a
destination, a more robust infrastructure is actually needed to support the needs of both the
tourism industry and the local community. Hence Community Participation is the right
Approach towards Inclusive Tourism Development in Developing Countries like India.

REFERENCES

Claiborne, P. (2010). Community Participation in Tourism Development and the Value of Social Capital.
University of Gothenburg, Master of Science in Tourism and Hospitality Management.
Garrod, B., Fyall, A., and Leask, A. (2001) “Scottish Visitor Attractions: A Collaborative Future?”,
International Journal of Tourism Research 3(4): 211-228.
Garrod, B. (2003). Local Participation in the Planning and Management of Ecotourism: A Revised Model
Approach. Journal of Ecotourism [Online] , 2(1), 33-35.
Hall, C.H. (2000). Themes in Tourism. Prentice Hall, Singapore.
Harper, P.(1997). The Importance of Community Involvement in Sustainable Tourism Development. University
of Reading, UK, Economics.
Madhya Pradesh Ecotourism Development Board (MPEDB). (2010). Community Involvement in Ecotourism in
Madhya Pradesh. Madhya Pradesh.
Mametja, M. C. (2006). Local Community participation in tourism in the case of the Manyeleti Game Reserve,
Limpopo Province and South Africa. University of Pretoria, Agriculture Economics, Extension and Rural
Development, Pretoria.
Moscardo, G. (2008). Building Community capacity for tourism development. London: CABI Publishing.
Murphy, P. E. (1985). Tourism: A community approach. New York: Methuen.
Rest. (1997). Community Based Tourism Handbook. Thailand.
Sanchez, M. J. (2009).Local Participation as a tool for tourism Development in La Guajira, Colombia.
Bournemouth University, NHTV University of Applied Sciences, Université de Savoie, Madrid.
Sharma, S. N. (2013, December 21). Inclusive Planning and Participatory Approach To Planning. Retrieved
February 22, 2014, from Sure Shot POST Online Publishing:
http://www.sureshotpost.com/2013/12/inclusive-planning-and-participatory_21.html#.UwobB87befk
Spenceley, A, (2008) Responsible Tourism: Critical Issues For Conservation And Development, Earthscan,
Thailand
UN Habitat. (2007). Inclusive and Sustainable Urban Planning: A guide for municipalities. Nairobi: UN Habitat.
White, A.T. (1982). Why community participation? Assignment Children, 59/60, 17-34
World Tourism Organisation. (1998). Guide for Local Authorities on Developing Sustainable Tourism,. Madrid,
Spain: World Tourism Organisation, Madrid.