12th National Convention on Statistics (NCS)

EDSA Shangri-La Hotel, Mandaluyong City

October 1-2, 2013

GROWING RURAL EMPLOYMENT THROUGH COMMUNITY-BASED TOURISM

by

Olivette A. Gabito

For additional information, please contact:

Author’s name : Olivette A. Gabito

Designation : Senior Labor and Employment Officer
Affiliation : Institute for Labor Studies, Department of Labor and Employment
Address : Intramuros, Manila
Tel. no. : 527-3452
E-mail : [email protected]

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 GROWING RURAL EMPLOYMENT THROUGH COMMUNITY-BASED TOURISM

by

Olivette A. Gabito

ABSTRACT

As an archipelagic country of more than 7,000 islands, the Philippines is

naturally endowed with tourism assets, many of which are largely unexplored and
isolated from mainstream tourism circuits yet presenting huge potential for tourism
development. Incidentally, small-scale or community-based tourism (CBT) is already
being promoted in many of these destinations as a strategy to improve livelihood and
provide alternative source of income to their marginalized communities.

Against this background, this study seeks to examine the potential and viability of
these tourism livelihood projects as a strategy for employment creation and poverty
reduction in the rural areas. For this purpose, case studies of model community-
based tourism projects in selected provinces in the Philippines were conducted.
Findings of the study highlight serious disadvantages that the community faces as
they seek to partake in the benefits from tourism development. Nevertheless, the
hope that CBT could be an effective tool for community development is not totally
unrealistic. Directions, identification of specific conditions and attributes that
contribute to successful projects and guidelines for their effective implementation are
important.

I. INTRODUCTION

About half of the Philippines’ population lives in the rural areas.1 Among them are the
poorest of the poor that include the indigenous people, landless farmers and fisher folk,
people in upland areas and women, most of whom are mainly dependent on agriculture for
livelihood. Rural communities, nevertheless, with their unique setting and natural resource
endowment, offer unique culture, heritage, landscape and other interesting attributes that
can be harnessed for tourism purposes, which, in turn, could generate jobs and increase
non-farm sector enterprises in these areas.

What is community-based tourism?

Community-based tourism has long been promoted as a development strategy in

many countries, particularly in peripheral rural areas where traditional agrarian industries
have been losing ground.2 Community-based tourism (CBT) is a type of sustainable tourism
that promotes pro-poor strategies in a community setting. CBT initiatives aim to involve local
residents in the running and management of small tourism projects as a means of alleviating
poverty and providing an alternative income source for community members. CBT initiatives
also encourage respect for local traditions and culture as well as for natural environment.3
The most widely accepted definition of CBT states that “a high degree of control and a
significant proportion of the benefits must be in the hands of members of local
communities.”4

1
Enabling Poor Rural People to Overcome Poverty in the Philippines, accessed at www.ifad.org
2
APEC Tourism Working Group. Effective Community Based Tourism: A Best Practice Manual. June 2010.
3
A Toolkit for Monitoring and Managing Community-Based Tourism, accessed at www.snvworld.org
4
Support Networks for Community-Based Tourism in Rural Costa Rica, accessed at
http://www.benthamscience.com/open/toarsj/articles/V001/16TOARSJ.pdf
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Rationale for CBT5

CBT has been viewed as offering an opportunity to empower local communities, particularly
in developing countries, to develop a more appropriate grassroots form of sustainable
tourism than mass tourism and to contribute to local economic development and poverty
reduction. It is argued that through developing CBT enterprises, communities can be
empowered by raising their pride, self-esteem and status; improving cohesion and
community development; and creating an equitable community political and democratic
structure. Through developing community based tourism, it is believed that communities will
be able to share the benefits from tourism, rather than simply endure its consequences. At
the same time they can offer tourists an enhanced experience and an opportunity to
experience community life.

Why this study?

The Philippine Development Plan 2011-2016 identified tourism as one of the ten
priority sectors for investment promotion and industry development. The country’s
development strategy further highlighted its policy agenda toward “inclusive growth”
emphasizing the need to ensure that economic growth translates to poverty reduction, job
growth and equitable income distribution among the wider populace. In the same manner,
CBT espouses an approach that is consistent with the idea of inclusive growth by advocating
that a significant amount of economic benefit accrue to the local community, particularly
amongst the low income, politically marginalized populations.

While the term ‘community-based tourism’ has never been explicitly used in previous
Philippine tourism strategies and plans, the Draft National Tourism Development Plan
(NTDP) and previous tourism plans are replete with references to the role of local
communities and the need to ensure that benefits of tourism redound to “concerned
communities.”

Furthermore, substantial amount of resources have been invested in CBT projects by

communities, governments and aid and development agencies. In addition, “residents also
commit time, money, effort and hope in CBT projects believing that they can bring a range of
economic and social benefits to their communities.”6 In the Philippines, a number of projects
have already been started through public and private partnership that aim to mainstream
tourism in community-based management as a means to improve livelihood and manage
natural and cultural resources in a sustainable manner. With the devolution of tourism
planning and promotion functions to the local government after the passage of the Local
Government Code in 1991, local government units are now at the forefront of these
initiatives as they are often the ones providing guidance and instructions as well as funding
for community-based programs.

Finally, considering that the larger sections of Philippine tourism destinations cover
rural areas, the potential of tourism development through CBT should be examined,
especially its potential as a strategy for employment creation and poverty reduction in rural
communities.

Aims of the research

In examining the employment creation potentials of CBT projects, this study seeks to
draw lessons and insights from the experiences of communities with existing CBT projects in

5
Armstrong, Rebecca (2012)
6
Moscardo (2008), p.1
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selected provinces in the Philippines. Through the conduct of case studies of model
community-based tourism projects, the research will try to identify the underlying practices
and processes that can make CBT projects successful and also the key challenges and risks
involved. The study will also be substantiated by a desk review of CBT initiatives in other
countries and a review of related literatures on the subject.

The aims of this research are therefore:

1. To document good practices in community-based tourism in selected Philippine

provinces;
2. To examine issues and challenges in advancing community-based tourism as an
employment generation strategy; and
3. To recommend strategies for enhancing the employment outcomes of CBT.

II. THE COMMUNITY BASED APPROACH TO TOURISM DEVELOPMENT

Nearly all developing countries have identified tourism as a viable direction in the
effort to alleviate poverty, however, not all forms and approaches to tourism development will
directly benefit the people in the locality.

A Bottom Up Approach

As is the case of most businesses, many tourism enterprises in the country are
owned and managed by private businessmen and investors. In these businesses,
particularly in high end or mainstream tourist destinations, a “top to bottom approach” to
business operations is employed, with the interest of the investors being the top priority (See
Figure 1). In this set-up, local people are mere employees, while the businessmen are at the
helm of decision-making. Traditionally, the income of these enterprises primarily goes to
businessmen who could afford huge investments and capital requirements for infrastructure
and other components while the local people earn their keep from the basic salaries they
receive.

Figure 1. Top to Bottom (Centralized Approach) in Conventional Enterprises

Adopted from Calanog et. al. (2012)

In contrast to the approaches of conventional enterprises, CBT ventures utilize the

“bottom up” or decentralized approach to business operation with the local people and their
leadership at the heart of decision-making and regarded as the primary beneficiaries of the

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enterprise. Through this set up, the community is ensured of direct benefits in every project
activity.

Inward-Oriented Development Model7

In some destinations, work opportunities are limited because the owners, who are not local
residents, prefer to hire staff from their home provinces or towns. Furthermore, the revenue
generated is mostly spent or invested elsewhere leading to tourism leakage. Rather than
focusing on the attraction of new businesses to the community or adopting an outward-
directed approach, CBTs are more inward in their orientation, by striving to help the
consumers become producers, users become providers, and employees become owners of
enterprise, through the principles of economic self-reliance, ecological sustainability,
community control, meeting individual needs and building a community culture. With the
community-based tourism model, the income that is generated locally is also utilized locally
as local people earn from their very own enterprise while being able to maintain and improve
their local biodiversity.

Other benefits of CBT include the following8:

1. CBT provides employment and income for marginalized people in the locality.
2. Agriculture, forestry, and marine products and by-products are showcased and
marketed, thus bringing local heritage and products back into the tourism map.
3. Cash is not leaked out of the community. Instead, local supplies are produced for local
consumption.
4. Surpluses and income revenues can be allocated to social development projects in the
community.
5. Surpluses and income revenues can also be utilized as capital for new community
enterprises (or as an alternative for more or other community enterprises).
6. Decentralized approach in decision-making allows local people to become economic
decision-makers and actively-engaged citizens.

Growth of CBT Perspectives

The growth of community-based tourism perspective has emerged from a growing

awareness of the need for more “resident-responsive” tourism or a more democratic
participation in tourism decision-making by grassroots members of a destination society.9
CBT is seen as an alternative to earlier approaches to tourism planning which have failed to
deliver development to the community at large, especially where parts of the latter are poor
or particularly disadvantaged. CBT has also often been linked with the “pro-poor tourism
agenda” which aims to mobilize tourism for employment creation and the alleviation of
poverty. The conceptual diagram shown below depicting the concept of Pro-Poor Tourism
demonstrates parallelism between the linkages and CBT goals.

7
Fennel (1999), p. 155-156
8
Calanog (2012), p.186
9
Moscardo (2008), p.60
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 Figure 1. Conceptual Diagram for Pro-Poor Tourism

Source: UNESCAP, n.d. adopted from http://ecoclub.com/articles/823-120504-duttagupta

As a concept, CBT refers to small-scale and “local” form of tourism, as opposed to

“mass tourism” which is characterized by large-scale development and aiming to attract a
large number of tourists/visitors. It is a form of tourism that favors local service suppliers and
providers and is focused on interpreting and communicating the local culture and
environment. A number of different terms have also been used alongside CBT with the same
objective of planning tourism to safeguard a destination’s cultural and natural heritage while
at the same time improving the socio-economic welfare of communities. These include
sustainable tourism, rural tourism and ecotourism.

One of the key differences between CBT and other forms of tourism is the focus on
empowering the local community to run their own tourism businesses. Meanwhile, the
following attributes are considered common to CBT operations:10

 aiming to benefit local communities, particularly rural or indigenous peoples or people in

small towns, contributing to their wellbeing and the wellbeing of their cultural and
environmental assets;
 hosting tourists in the local community;
 managing a tourism scheme communally;
 sharing the profits or benefits equitably;
 using a portion of the profits or resources for community development and/or to maintain
and protect a community cultural or natural heritage asset (e.g. conservation); and
 involving communities in tourism planning, on-going decision making, development and
operations.

III. CBT CONCEPTUAL FRAMEWORK

The conceptual framework below represents how CBT approaches to community

development can lead to successful tourism projects and thus, generate employment for the
local community.

10
APEC (2010), p. 3
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 Figure 2. CBT Conceptual Diagram

Positive Employment Outcomes

Successful Tourism Enterprises

Good Practices and Processes

Community-Based
Tourism Enterprises

Pro-Poor Inward- Bottom-Up

Oriented

IV. CBT INITIATIVES IN ASIA AND OTHER COUNTRIES

The development of community-based tourism has become an integral part of rural

development strategies in many countries. Community-based tourism is widely practiced in
Latin America where a network of 15 destination countries promoting more than 100 small
community tourism enterprises may be found. In 2001, the International Labour Organization
(ILO) provided technical support to the launching of the Redturs project,11 a network of
indigenous and rural communities in these Latin American countries seeking to promote
decent jobs and healthy economies through CBT.

Successful models of rural tourism have also been cited in Asia.12

The Pha Mon Karen Community in Chiang Mai, Thailand is a community-owned

enterprise offering forest walks, cycling trips, village visits, local food, cultural and traditional
activities. The enterprise is said to generate approximately €10,000 annually for the
community fund.

One Life Japan, on the other hand is a community-based tour service that allow
participants to learn more about the local environment instead of spending money and being
processed through popular tourist traps by offering tourists the chance to live with and go on
tours led by local people in the province of Nagano. Bikes are provided, as are maps and all
meals (often prepared by local farmers or picnics using locally-grown food). Visitors can
choose to spend a night in a local family’s home, a 200 year-old family-run inn, or a
mountaintop hut. They can set off hiking in the countryside on their own, or work for an

11
See http://www.ilo.org/public/english/knowledgefair/download/policy/1_3.pdf
12
Other country examples of successful CBT projects are cited in the following materials: APEC (2010) and Armstrong (2012)
accessible at http://torc.linkbc.ca/torc/downs1/APEC%20Effective%20Community%20Based%20Tourism%20WEB.pdf and
http://www.artyforum.info/RTD/OP21RebeccaArmstrong.pdf
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afternoon in a rice field or collecting wild vegetables. Bilingual facilitators who have studied
the area and culture are also made available.

Another example of good practice CBT in Asia is the case of Bario, a remote village
surrounded by rainforests in the Kelabit Highlands of Sarawak Malaysia where visitors can
stay with local families as part of a home-stay, and other community members work as
guides on treks, or provide transport and food to visitors. An art gallery and handicraft shops
sell local artists’ work. Other activities provided by the community include jungle survival
courses, treks to other longhouse communities in the area, paddling and fishing, information
on longhouse living, talks on the local flora and fauna, jewellery making classes, worshipping
with the local Christian community, traditional dance, and visiting the local salt mines or the
ancient monoliths. Tourism in Bario has become one of the cornerstones of the local
economy. It has led to the creation of several micro-enterprises that have created
employment, particularly for women, and this has in turn re-invigorated the local economy,
attracting ex-residents to return to the community and retaining young people who are now
able to find paid work. As highland trekking has grown in popularity among tourists, these
beneficial effects have also been felt in the more remote communities throughout the area.
Because of tourism revenues Bario was able to establish a telecentre which they are now
using to market and promote their tourism venture.

V. PHILIPPINE FRAMEWORK FOR CBT DEVELOPMENT

The term community-based tourism (CBT) has never been explicitly used in previous
Philippine tourism strategies and plans although the Omnibus Tourism Code (Tourism Act of
2009), the Sustainable Tourism Development Plan for Central Philippines prepared in 2007
and the Draft National Tourism Development Plan for 2011-2016 are replete with references
to the role of local communities and the need to ensure that benefits of tourism redound to
“concerned communities.”

The 2007 Sustainable Tourism Management Plan for Central Philippines states that
“government policy on community involvement encourages participatory processes that
strive to attain equity for all concerned.” It states further that “the application of this policy is
manifested in the acceptability of tourism development to the host communities and
validated by the degree of communities’ participation in its component activities.” This policy
also gives emphasis on “bringing the benefits of tourism development to womenfolk and
putting in place measures that will not make them unfairly pay the price of such
development.”

Republic Act 9593 also known as the Tourism Act of 2009 recognizes, on the other
hand, the need to balance tourism development between urban and rural areas in order to
spread the benefits of tourism and contribute to poverty alleviation, better access to
infrastructure and to a reduction in regional imbalances. Also mentioned in its general policy
objectives is the need to enhance capability-building of local government units (LGUs), in
partnership with the private sector in the management of local tourism projects and
initiatives, thereby ensuring accessible and affordable destinations throughout the country,
especially in areas which have shown strong comparative advantage.

The latest draft of the National Tourism Development Plan for 2011-2016
recommended the promotion of “a more pro-poor pattern of tourism through increased local
community participation in the development of tourism in their area especially at public
sector tourism sites in their vicinity.”

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 While the country has no explicit development framework for CBT, the National
Ecotourism Strategy, issued in 2002, stated among its objectives the need to “spread
tourism benefits to rural areas not only for employment generation and poverty alleviation
but also for the sustainability of the tourism industry.”

Meanwhile the DOT, through the Grassroots Entrepreneurs Employment and

Tourism (GREET) Program has granted some 55 million to about 123 rural communities to
help develop and improve indigenous tourism products and facilities as well as for training
on tour and trek guiding, native craft making and local food catering. The objective of the
GREET Program is to generate employment and livelihood with balanced ecology and
environmental protection to promote ecotourism sites and develop tourism at the community
level.13

VI. LIMITATIONS OF THE STUDY

CBT arrangements transpire in a number of ways and structures. These

arrangements range from the ‘purest’ model, which is solely a community-owned business
venture to another model wherein the community is engaged in a collaborative partnership
with the government an NGO or a private sector (see Table 1).

Table 1. Institutional Arrangements/Models for Community Involvement/Livelihoods in

Sustainable Tourism

Types Brief Explanation

Community-owned This is considered the ‘purest model’ of community-based
tourism. The community owns, controls, and manages the
tourism venture.
Joint venture with the An outside business partner or NGO collaborates with the
private sector or NGO community; the partnership may be based on lease
agreement.
NGO or other The tourism venture is initiated and managed by a local
grassroots organization or external NGO in accordance with the
organizations community’s traditional use of natural resources.
Collaborative The community collaborates with national or local government
management with in the management of public land (e.g. Marine Protected
government (also Areas, NIPAS sites). Decisions and problem-solving are based
known as co- on the collective actions of community members and other
management) relevant stakeholders.
Source: Catibog-Sinha (2011), p.101

For purposes of this research, the selection of cases has been based on the
condition that CBT projects should be engaging members of people’s organizations in the
mainly agricultural communities as local suppliers or service providers, regardless of the
structure or business model employed. This research is thus concerned only with enterprises
comprised of a group or groups with common interest (rather than by private
individuals/corporate ventures), with the intention of benefitting the wider group as well as
the individuals within it.

The following CBT projects were chosen based on a list of model CBT projects
obtained from the Department of Tourism (DOT):

13
Reyes (2011)
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1. Guisi Community-Based Heritage Tourism Project of Nueva Valencia, Guimaras;
2. Donsol Whaleshark Interaction Project of Donsol, Sorsogon;
3. Abatan Community River Life Tour of Cortes, Bohol; and
4. Pamilacan Island Whalewatching and Dolphin Industry of Baclayon, Bohol

For some reason, it was realized that all the model CBT projects listed by DOT are
actually ecotourism sites. This, nevertheless, the objective of this research is actually to find
out the employment generation potential of other CBT ventures, not just those characterized
as ecotourism. However, for purposes of the subsequent research findings, CBT
generalizations were based on the observational data gathered from the above four
CBT/ecotourism projects.

VII. OBSERVATIONAL DATA / FINDINGS FROM CASE STUDIES

A. Guisi Community-Based Heritage Tourism Project (GBHTP)

This community tourism project showed great potential of providing an additional

source of income to the people of Barangay Dolores, whose main sources of livelihood are
fishing, farming and charcoal-making. It started through a donation of a heritage cottage
from the Provincial Government and the Canadian Urban Institute to be managed and
operated by the community as a lodging facility for Guisi travelers and guests. The cottage is
strategically located beside the ruins of an 18th century old Spanish lighthouse, which is
among the most visited sites in Guimaras and a very important part of its tourism products.
Sitio Guisi is also famous for its pristine white sand beach and island hopping activities. All
travellers to Guisi visit the symbolic lighthouse which also provides a spectacular panoramic
view of the place.

To supplement the income from the heritage cottage and as a means to diversify
Guisi’s tourism products, the Guisi Discovery Quest Tour Package was launched in 2008.
Among the major highlights of the tour package are boat ride, snorkeling, rappelling,
mountain biking, trekking and coastal walk. Aside from these activities, the tour package also
includes a showcase of the unique tradition and heritage of Guisi through the karosa ride,
local food demonstration, and a cultural presentation by the students of Dolores Elementary
School. Prior to this, the community and its members who were identified to act as tour
guides, boatmen, food caterers and tanods received various skills enhancement and
trainings sponsored by the LGU, TESDA, DOT and other agencies. Besides capacitating
them, DOT also provided various equipment including snorkeling gears, mountain bikes and
rappelling gears. To further augment the economic outcome of this village-based enterprise,
CIDA has recently approved a grant for the construction of a coffee and souvenir shop and a
mini-grocery store within the vicinity of the lighthouse. Also part of the CIDA funded project is
the promotion of agri-tourism by providing a credit facility to members who would like to
engage in backyard farming and poultry-raising to supply the activities of the heritage
cottage.

Because Guisi is an emerging destination, the place typically has very limited tourism
establishments to cater to tourists. At present, there are only two private resorts operating in
the area and it will be highly advantageous for the community to initiate tourism development
at this point, as they still have few competitors in offering these tourism products and
services.

However, despite prospects for further expansion of this community enterprise, the
community is currently being hindered by limited access to, and ownership of, land and

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physical assets for tourism. For instance, because of the absence of the necessary permit
from the Philippine Coast Guard which has the jurisdiction over the land on which the
lighthouse stands, the construction of coffee shop and grocery store has been put on hold.
The community also needs to secure permit from the National Historical Institute which has
the mandate in the restoration of the tower. Pending the issuance of access rights to the
community, larger private sector enterprises could, at any time, take advantage of the
tourism opportunities.

It was also evident that despite the community’s great enthusiasm during the earlier
phase of the project, the newly formed community-based association lacked the capacity to
sustain previous gains in managing the tourism project. The Barangay Dolores Tourism
Council is a public-private consortium which oversees the tourism-related activities of the
barangay before it was transferred to the community-based Barangay Dolores Heritage
Tourism Association (BDHTA). It was observed that the facilities of the heritage cottage are
already showing signs of deterioration. It was also admitted that the Discovery Quest Tour
Package is not selling to local tourists who mostly comprise visitors to Guisi. The reasons
cited for the poor turn-out of the project are varied, such as lack of access rights to pursue
the expansion within the site of the lighthouse, poor infrastructure such as absence of water
supply in the area, small number of tourists, poor marketing and promotion and lack of
capacity for project administration on the part of the community-based association.

In a small barangay community like Barangay Dolores, very few individuals would
likely be able to demonstrate leadership skills that are crucial in the management and
operation of a tourism enterprise. The community is thus held up with a limited pool of willing
and capable leaders who could sustain the operation and management of the tourism
project. On the other hand, the DOT which is in charge with the promotion and marketing of
the project seemed to have waned in its effort despite the fact that no less than Secretary
Joseph Durano graced the launching of this project in 2008. Focus group discussions with
tourism managers also revealed that monitoring of the project is likewise hampered by the
municipal government’s personnel services cap. When asked about the status of the project,
the Tourism Officer-Designate admitted that they can no longer handle project monitoring
because of personnel deficit and they are only pressed to act when issues regarding the
project are brought to their attention. Political and governance issues also strongly figure
among the major challenges being faced by the project as it appears that differences in party
affiliation between the heads of barangay the municipal and provincial governments have
likely affected the flow of support for the project.

B. Donsol Whaleshark Interaction Project (DWIP)

Among the cases examined for this research, the Whaleshark Interaction Project of
Donsol demonstrated the most ideal set-up, enabling the grassroots to feel the beneficial
outcomes of the tourism project and empowering them through their involvement not only as
suppliers and providers of services but also as direct participants in decision-making and
planning processes.

The development of a community based ecotourism project in Donsol started with the
conservation and lobby efforts of WWF and other non-government organizations which led
to the declaration of the municipal waters of Donsol as a whaleshark sanctuary in 1998. The
advocacy efforts of conservation groups did not just result in the crafting of legal instruments
to protect the whalesharks, it also brought an enormous number of local and foreign tourists
who found swimming with the butandings “an adventure of gigantic proportions”.

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 Being an LGU-led community-supported venture, the municipal LGU oversees and
manages the operation of the tourism activity but works in close partnership with the DOT
and WWF. The municipal LGU, DOT and WWF function in a tripartite arrangement where
they perform their respective mandates of managing the tourism product; research and
conservation; and tourism promotion and marketing. The tripartite system of management
undertaken by the WWF, DOT and the municipal LGU proved beneficial in addressing the
myriad concerns associated with the operation of a CBT project.

The Whaleshark Project carried with it the true essence of community-based tourism
by involving the grassroots, including the women and out-of-school youth as service
providers. Members of the Butanding Boat Operators’ Association were once marginal
fishers of Donsol who now earns substantially each whale interaction season. Next to the
boat operators, the Butanding Interaction Officers (BIOs) are the major service providers for
the DWIP. Other local organizations of service providers also benefitted from the spill-over
effects of this tourism project. To address the clamor from other members of the community
to partake in the benefits of tourism, the Donsol Rivercruise and Firefly Watching
Association, the Island Hopping Association, the women’s Health and Wellness Association
and the Girawan Character Village were organized to offer distinct tourism products. The
strategy of diversifying tourism products for a wider distribution of economic benefits of
tourism is a good CBT practice that deserves to be highlighted.

Along with the people’s traditional livelihood such as fishing, ecotourism became
Donsol’s second engine of economic growth. As a result of increased revenues from
tourism, the municipality of Donsol has changed from being a laid back fishing and
agricultural town into a first class municipality. Moreover, because of the way stakeholders
democratized Donsol’s system for tourism, the people of Donsol had every chance to share
the benefits of tourism and feel the positive impacts both on their dining tables and in their
wallets.

C. Abatan Community River Life Tour (ACRT)

The most recent of all the CBT projects studied for this research, the Abatan
Community Life Tour is a nature experience/river tour project that traverses the five
municipalities of Bohol (Cortes, Maribojoc, Antequerra, Balilihan and Catigbian). It started as
a conservation project undertaken by Process Bohol, a social development non-government
organization operating in the province in 1999. Realizing later on the potential to create a
tour along the river, the different municipal officials were consulted and organized to be part
of the Abatan River Development Management Council (ARDMC) which now serves as the
regulatory body not only of tourism development but also of environmental conservation
efforts along the Abatan River. The involvement of an NGO that specializes in community
organizing proved beneficial in uniting the POs of the different municipalities toward this
ecotourism development strategy.

The tourism product being offered is much like the Loboc River Cruise but the
development of the Abatan Tour was specifically aimed at bringing the benefits of tourism
directly to the people by organizing them into cooperatives and engaging them as service
providers.

In each of the municipalities, a village center is established that will feature the
communities’ products and demonstrate how they are made. These satellite ecotourism
villages serve as river tour stopovers, where the tourists could take some meals, get a
preview of what the place can offer and buy some souvenir items and briefly experience
community life in the area. In addition to the nature experience of cruising along the Abatan

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River and the local attractions and destinations of the towns covered by the project. Abatan’s
rich cultural heritage is also being showcased through the performances and dances
interpreting the life of the community and history related to fishing and agriculture, and food
and livelihood demonstrations. The activities are managed by cultural collectives composed
of people of all ages to give everyone in the community a chance to get additional revenues.

Today, around 2000 people are visiting the Abatan River per month, but it includes
the 30-minute firefly tour which mostly contributes to the volume of visitor arrivals. The low
number of visitors availing of the regular tour package is due to the high price of the tour
which costs about P1,400 per person for a group 10. It was also noted that it is only when
the regular tour packages are availed that the local service providers, including the cultural
collectives earn from the tourism activity. Process Bohol also attributes the small number of
visitors to lack of promotion.

D. Pamilacan Island Dolphin and Whale Watching Industry (PDWW)

The CBT experience of Pamilacan underscores the difficulty in building community

self-sufficiency and empowering locals for tourism development in the absence of a
permanent structure that would oversee and manage CBT operations despite attempts by
different stakeholders to revitalize them. At present, the absence of a genuine organization
that would represent the collective interest of the people of Pamilacan overthrows all
previous efforts to harness the potential of tourism for community development.

The earliest attempt to develop a community-based tourism project in the island was
initiated by the WWF in 1998 with the assistance of the Inter-agency Task Force on Marine
Mammal Conservation. The project’s goal was primarily the conservation of marine
mammal’s population and to develop a self-sustaining whale watching industry as a
conservation-livelihood strategy. To train and involve former dolphin-whale hunters in marine
tourism, a grassroots organization called the Pamilacan Island Dolphin and Whale-watching
Organization (PIDWWO) was created.

In 2001, PIDWWO received a funding support from the New Zealand-aid National
Ecotourism Programme (NEP) for training and capability building in running a tourism
business through the development of an ecotourism business plan, wildlife tourism
interpretation, communication skills and tourism management strategies. Through this grant,
the community likewise received soft loans to transform their fishing boats into tour boats,
purchase life jackets and snorkels and construct toilets and rain water collectors on the
island. For a time, the activities of PIDWWO generated livelihoods and raised significant
revenues that benefitted the local community.

In 2005, however, a financial fiasco involving one of PIDWWO’s officers damaged

the reputation of the organization. At present, PIDDWO is beset with management and
organizational problems. According to its president, only a few individuals are actually
involved in tourism activities. The system of rotation is no longer being followed and even the
few members who get to benefit from tourism are not paying the required association dues.

In 2008, Ayala Foundation spearheaded the effort, to once again, revive the
community tourism project by organizing the Pamilacan Island Tourism Livelihood
Multipurpose Cooperative (PTOLMPC). Ayala Foundation, through PTOLMPC assisted
Pamilacan residents by providing them with soft loans to finance the refitting/conversion of
decommissioned whale fishing boats into tourism boats. Other livelihood projects supported
by the Ayala Foundation include small capital outlay for livestock raising, vegetable
gardening, setting up small shops (sari-sari store) and a souvenir shop, and training and

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initial capital outlay for body massage services. Aside from the grant of loans for business
purposes, Ayala also provided financial assistance for school allowances and tuition fees of
qualified members and emergency loans for needy members.

Even the existing members of PIDWWO were benefitted by the livelihood projects,
trainings, workshops and seminars organized by the Ayala Foundation. However, in 2010,
when Ayala withdrew from the project, PTOLMPC likewise ceased to exist as a group.

VIII. REFLECTIONS ON THE CBT EXPERIENCE (ANALYSIS AND KEY ISSUES TO

BE CONSIDERED IN THE DEVELOPMENT OF CBT PROJECTS)

The experience of the four tourism projects that were selected and analyzed for this
research shows that even before any economic or employment benefit to the community
from CBT projects could be realized, there are a number of critical issues that should be
considered in the development of tourism initiatives run and managed from a community
institutional base.

1. Residents of local communities are often lacking appropriate skills and knowledge
to manage tourism on their own.

While it is said that the ‘purest’ or most ideal form of participation in a community
based tourism is one where the community itself owns, controls and manages the tourism
operation14, residents of local communities are often lacking appropriate skills and
knowledge to manage tourism on their own. As seen in the case of the Pamilacan Dolphin
and Whale Watching industry, the operation of the community-based tourism activity may
only last until the lifetime of the donor agency. In the case of the Guisi Heritage Tourism
Project the series of trainings, support and capability building programs provided to the
community have not guaranteed a successfully-managed independent CBT project.

Government and development agencies involved in tourism development must also

realize that regardless of their social or environmental dimensions, CBT projects must
operate as any business, compete in the market and be profitable if they are to attain their
higher ends. In this regard, a strong NGO or government agencies working alongside to
develop the initiative and build capacity at the community level may prove invaluable. In fact,
there are other CBT perspectives which consider that a community is more likely to succeed
in partnership with other entities, e.g. private entrepreneurs, donors, NGOs, etc rather than
by seeking to run the enterprise entirely by itself.15 Furthermore, as seen in the case of
Donsol, a collaborative arrangement with different institutions led by the LGU and with the
support of the community could be an ideal set up. In the case of the Abatan River
Community Life Tour, the presence of an NGO that is specializing in community
empowerment offers more chance of success for a community-based tourism project.

2. Community ownership, access and management of land resources for tourism are
often limited.

As illustrated by the case of Guisi, one of the barriers to the success of the project
was the lack of ownership or access rights to the site. As is often the case in CBT
enterprises, the lands on which communities establish their tourism enterprise are public-
owned. When the community fails to establish ownership or access, more powerful
stakeholders, such as owners of private resorts are more likely to take advantage of the
tourism opportunity perpetuating the marginalization of rural and indigenous communities.

14
Catibog-Sinha (2012)
15
Moscardo (2008), p. 101-114
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The need to establish community’s access rights to land and other resources for tourism are
thus important to the success of a tourism enterprise as this will give them the ability to
generate community benefit and the will to commit and invest in a long-term enterprise.

3. The natural and cultural resources for CBT projects are mostly found in remote
locations and characterized by poor infrastructure base.
It is said that the two cornerstones to effective marketing of tourism sites are the
attraction for tourists and tourism infrastructure to support the industry.16 Although studies on
the characteristics of ecotourists show that these people are naturally drawn to areas that
are away from the main tourist destinations, at the minimum, good levels of tourist safety
and health must be ensured in these destinations. Except in the case of the Donsol
Whaleshark Interaction Project, where probably the uniqueness of the tourism product
compensates for accessibility issues, among the major barriers to successful marketing of
the tourism product in the cases examined are poor water supply (GBHTP); absence of
regular passenger ferry and distance from the mainland (PDWW); and remoteness from the
main tourism circuit (ARCT).

4. Small communities lack marketing capacity.

With the exception of Donsol Whaleshark Interaction Project which has already
captured a steady and secure market, this is an area in which all of the initiatives face
challenges. One of the factors that may account for this is the projects’ relative isolation from
the mainstream tourism circuits. Another is the cost of effective marketing programs. As
noted in many CBT studies, marketing is one of the most difficult aspects for small-scale
projects to get a handle on because of the complexity and cost of effective marketing
programs.

5. CBT offers seasonal and limited opportunities for employment.

Tourism projects such as the operation of the heritage cottage, (GBHTP); guided
river cruise (ARCT); marine mammal encounters (PDWW and DWIP) were seen to generate
seasonal income for a small number of people within the rural community (just the regular
caretaker and sometimes, the cooks/food handlers for GBHTP; the boat operators and crew
for the ACRT, PDWW and DWIP). In the case of the Donsol Whaleshark Interaction Project,
concerns with regard to keeping the local carrying capacity and meaningful levels of income
have prevented other members of the community from being part of the main suppliers and
providers of tourism services e.g. boat operators and BIOs. However, where opportunities
for linkages to other sectors and economic activities could be made, such as the sale of
souvenir items and craft products and cultural performance in the ARCT; the promotion of
agri-tourism in GBHTP; or where women and out of school youth are trained to provide
wellness massage, put up homestays, souvenir shops and engage in other tourism activities
(e.g. firefly watching activities, island hopping, and setting up a character village) in DWIP,
greater economic benefits to the community are realized. The degree to which local
talents and resources are mobilized to create entrepreneurial activities, and tourism
products are diversified, to enable other community-based organizations to
participate in tourism activities will determine the extent of employment creation.

6. Opportunities for financial capital in small communities are limited.

While the diversification of tourism offers and the creation of entrepreneurial activities
are deemed to be important in increasing the potential of CBT projects to generate
employment, in all the cases examined, the community could not have engaged in tourism
16
Ryel and Grasse in Fennel (2006)
Page 15 of 19
product development without funding assistance from donors and other government
agencies. As pointed out earlier, community ownership of tourism resources such as lands
are often limited and so it would be difficult for village associations to secure loans because,
for instance, communal landownership may not be accepted as collaterals. Many of the
women who expressed interest to put up small tourism businesses are also being hindered
by lack of credit access.

7. Community based tourism may be vulnerable to local politics.

While a government-led tourism project seems to be working well in the case of

Donsol, there are also some disadvantages to a government-led tourism program. As seen
in the case of Guisi and Pamilacan, project implementation and governance may be affected
by rivalry and differences in political interests at the level of the barangay, the
city/municipality and province. Hence, it could be that some projects that were formerly
considered to be priority are now given least attention in terms of assistance. Movement of
personnel, especially in the Municipal Tourism Office, whenever a new set of political
leaders is elected is also a challenge to the consistency of tourism programs and policies
that affect CBT.

IX. KEY COMPONENTS FOR SUCCESS OF CBT PROJECTS

From an analysis of the initiatives, it was shown that a CBT project is more likely to
be successful when the following are present:

1. Uniqueness and inherent attractiveness of tourism assets.

As many of these community based ecotourism projects are found in the peripheral
rural areas, they must offer a kind of tourism offering that would be attractive for people to
visit these areas despite their marginal or remote locations. The tourism product must be
marketable, of sufficiently high quality and inherent attractiveness to tourists. Good levels of
tourist safety and health are also important as are human and physical capital.

2. Presence of strong NGO or government agencies working alongside that has a

good knowledge of the industry.

Particularly at the beginning stages of the initiative, having a competent agency

working alongside to develop the initiative and build capacity at the community level has
proven invaluable as in the case of Donsol.

3. Beneficial tourism policies and laws that encourage CBT development.

CBT is most likely to be successful where it is supported and facilitated by beneficial

tourism policies and laws that encourage CBT development. As seen in the case of Donsol,
the management and operation of the tourism activity can be woven through supportive local
legislative policies or ordinances that mandate the tour package fees, system of
accreditation for suppliers and providers of services and system of rotation for a more
equitable income distribution. In the case of Pamilacan, while there is in principle, an
ordinance that is supposed to govern how tourism activity should be operated, this is not
actually being put into practice for political reasons.

4. Access rights and/or equitable participation in the management of the tourism

resource.

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 This allows the community to have control over the use of the resource and can
prevent private stakeholders in taking advantage of the tourism opportunities.

5. Access to funds.
Provision of start-up funds for tourism initiatives through soft loans and funding of
costly infrastructural development will provide a successful catalyst for community-based
tourism initiatives.

6. Creation of visible links to the wider community.

As earlier raised, the degree to which local talents and resources are mobilized to
create entrepreneurial activities, and tourism products are diversified, to enable other
community-based organizations to participate in tourism activities will determine the extent of
employment creation. Other members of the community could, for example, be encouraged
to start up enterprises that seek to provide needed inputs to other existing local businesses
e.g. sale of crafts and souvenir items, food vending, spa services, etc. Through the
development and use of support industries, the financial impact of the existing set of tourists,
no matter how small, may be increased.

7. Engagement with the private sector especially in marketing and promotion.

Since the mainstream tourism market has the necessary economic muscle,
engagement with the private sector is absolutely crucial to the success of CBT projects,
especially in gaining market access. CBT enterprises should be able to capitalize on the
commercial opportunities presented where significant tourist numbers already exist by
engaging with the private sector such as tour operators. For instance, CBT enterprises could
benefit from being included in the tour packages developed with mainstream tourists’
destinations.

8. Non-partisan tourism support structures.

Community-based management structures that are not politically polarized will be

most beneficial for CBT projects.

9. Initiatives that create opportunities for and strengthen participation of women and
young people.

As most marginal areas are dominated by women and unemployed young people, it
is when these CBT initiatives and the jobs that they create are able to accommodate women
and young people’s skills and roles that the benefits to the community as a whole would be
significant.

X. CONCLUSION

Considering the role of DOLE in assisting community groups in developing

sustainable enterprises through the DOLE Integrated Livelihood Program (DILP), this study
hopes to serve as an input and guide for DOLE evaluators in examining the potential and
viability of tourism livelihood projects, particularly those initiated by community groups. The
experience of the four CBT cases examined highlights serious disadvantages that the
community faces as they seek to partake in the benefits from tourism development.
Nevertheless, the hope that CBT could be an effective tool for community development is
not totally unrealistic, as proved in the case of the Donsol Whaleshark Interaction Project.

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Directions, identification of specific conditions and attributes that contribute to successful
projects and guidelines for effective implementation are important. Furthermore, the role of
DOLE in operationalizing a convergence scheme of related programs and services of
government agencies and private organizations that will assist and provide complete support
to CBT enterprises will be invaluable, as shared information, knowledge and
interconnectedness between different stakeholders responsible for tourism development
create a stronger foundation for CBT development.

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