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ΤΟΥΡΙΣΤΙΚΗ ΑΝΑΠΤΥΞΗ  ΚΑΙ ΔΙΟΙΚΗΤΙΚΗ ΑΠΟΚΕΝΤΡΩΣΗ

 

 

Το συγκεκριμένο άρθρο με τις θεωρητικές προσεγγίσεις που πραγματεύεται και τις έμπρακτες εφαρμογές που διερευνά, αφορά στα πεδία της διδακτέας ύλης που άπτονται του τουρισμού ως παραγωγικού και διοικητικού συστήματος που ορίζει τις χωρικές ενότητες μιας χώρας ως τόπου διακοπών, και προσδιορίζει τον τύπο και τις μορφές ανάπτυξής τους, λαμβάνοντας υπόψη τη δυναμική μιας διοικητικής τουριστικής αποκέντρωσης.

 

 

 

MODULAR TOURIST COMPLEXES AND AREAS OF INTEGRATED TOURISM DEVELOPMENT AS RECOMMENDED TOOLS OF ORGANIZED TOURISM SUPERSTRUCTURE IN GREECE. CRITICAL REVIEWS.

 

Stelios Varvaressos¹  , Sgouro Melisidou²  &  Marios Soteriades³    

 

¹ Tourist Enterprises, TEI of Athens,

                         ² Tourist Enterprises, TEI of Athens, Greece

                     ³Tourist Enterprises, TEI of Crete, Greece

 

ABSTRACT

        In the post-war years, the prevailing model for tourism development in Greece has been given various definitions, such as, "spontaneous", "chaotic" "and unplanned". This model was in fact resulted from the development of international mass tourism and mainly related to sun activities concentrated in coastal zones.  It is primarily a model representing the demand for tourism goods and services, the main feature of which was mass production and standardization for the final beneficiaries the tourists - consumers, as a result of socially organizing the demand, mainly of an international nature.

      The law draft on enhancing tourism entrepreneurship and "Organized Tourism Superstructure» as suggested by the Ministry of Tourism, intends to encourage a number of investments in the Modular Tourist Complexes (M.T.C.) and in the Areas of Integrated Tourism Development (A.I.T.D.), in the country’s popular tourist regions and islands, inevitably exacerbating the current problem of oversupply of tourist accommodation. In this paper we will seek both to define and conceptualize the above notions and discuss the negative and positive effects that bear its implementation, however we will attempt to propose "alternative actions" and measures, which require the differentiation of the Greek tourism model.

The main objective of this paper is to examine whether the promotion of the M.T.C. and the A.I.T.D., as well as their integration into the current tourism policy in Greece have been sufficiently explored by the Ministry of Tourism, international experience taken into account. After outlining the kind of tourism development at the M.T.C. and the A.I.T.D. at international level, the present paper aims at criticizing the resulting effects at spatial level.

        Conclusively, alternative practices and measures of tourism development related to a qualitative approach of the existing oversupply of tourist accommodation in the country will be presented, since it the Modular Tourist Complexes and the Areas of Integrated Tourism Development do not constitute an enlarged spatial planning of the coastal zone, weighing heavily upon the excessive demand for accommodation.

 

Key Words: Modular Tourist Complexes (M.T.C.), Areas of Integrated Tourism Development (A.I.T.D.), Tourist Enclaves. 

 

 

 

 

 

 

 

 

 

 

1.INTRODUCTION

 

      The Modular Tourist Accommodation Complexes (M.T.C.) and the Areas of Integrated Tourism Development (A.I.T.D.) enhance the existing tourist models without to differentiate them, in contrast with the modern alternative models of tourism development which are based on the development and enhancement of the cultural, natural and social resources. Regarding their adoption and implementation, is one of the principle objectives of the existing tourism policy. This paper attempts to quote some views on the philosophy of “Modular Tourist Complexes” and “Areas of Integrated Tourism Development” and its integration in the national tourism policy framework, in the Greek existing situation.

       In this paper we attempt to present the aspects of the ‘modular tourist complexes’ and the ‘Areas of Integrated tourism development’ and on the other hand to propose alternative actions and measures, by examining the International experience regarding integrated tourism development. Practices from various countries can offer us many examples of alternative models of tourism development, such as sustainability, by taking advantage of the existing tourist resources, as well as by taking particular account of the architectural aesthetics, the landscape and the spatial, social and economic adaptation of the project to the local characteristics etc.                               The new tools recently introduced but not yet implemented is the creation of “Areas of Integrated Tourism Development”.  As Integrated tourism development areas are recognized either, areas with significant tourism infrastructure where demand is quite important; or where tourism infrastructure is important while natural environment is rather fragile and the demand is still high; or areas where there is important infrastructure and low demand.  The creation of these areas aims on the one hand at the control of tourism development and on the other hand at the amelioration of tourism services, since in these areas it would be possible to provide adequate infrastructure and assure the provision of high quality services.

       

       The relevant Law draft, which will be presented, “Special Framework of Spatial Planning for Tourism (Gov. Gazette 1138/V/2009) aims primarily at creating or improving the conditions of prosperity and quality of life in the county’s regions and communities. Therefore, it sets directions, rules and criteria for the spatial structure and the organization of tourism in Greece and determines the necessary infrastructure. At nowadays, its implementation consist a primitive goal of the existing tourism policy, and a predominant tool for tourism development.  

 Conceptually, issues and constraints such as the spatial planning and management and the lack of macro – economic project analysis and conjunction with the local socio economic communities prove that the Greek integrated tourism development areas do not meet the criteria needed of the international experience standards. However they correspond rather to the idea of a holiday club or tourism enclave, although in reality they do not involve the characteristics of an enclave, also. Enclave tourism is a form of self-contained resort development which is geographically isolated or insulated from the surrounding indigenous population, enclave resorts in Third World and less developed destinations, such as Greece, are associated with '4-S tourism' (sun, sand, sea and sex) (Lanfant, 1995).

The Greek tourism product can be differentiated against other competitive products that have the same image, by highlighting elements related to cultural heritage, natural environment and humanity, which can be qualified as unique. Developing traditional buildings and residential complexes, which are characterized by their uniqueness and find themselves in a state of neglect and desolation, for the purposes of tourism, can contribute substantially to the diversification of the overall Greek tourism product.

2. The new Law Draft “Special Framework of Spatial Planning for Tourism ” (Gov. Gazette 1138/V/2009)

      The Special Framework of Spatial Planning for Tourism (Gov. Gazette 1138/V/2009) aims primarily at creating or improving the conditions of prosperity and quality of life in the county’s regions and communities. Therefore, it sets directions, rules and criteria for the spatial structure and the organization of tourism in Greece and determines the necessary infrastructure. In this way, a realistic action plan for the next 15 years is formulated (2009 - 2024). A draft Joint Ministerial Decision has been set (from 09/03/2012) for Public Consultation, approving the Special Framework for Spatial Planning and Sustainable Development for Tourism and Environmental Impact Assessment, evaluating the experience gained from the implementation of the relevant Ministerial Decision of 2009.

 

2.1. The new law draft of the Ministry of Tourism on strengthening entrepreneurship and the organized receptors for tourist activities.

 The provisions of the new law draft apparently refer to:

- The intention to suspend even the few diversifications included in the Plan of regions, set by category (developed regions, developing regions, mountainous regions, - islands, metropolitan regions, protected regions, etc.) and to allow unrestricted implementation throughout the country.

- The objective to give priority to investment in Modular Tourist Complexes (M.T.C.) as well as to Areas of Integrated Tourism Development (A.I.T.D) (Art. 11,12,13).

       Therefore, it appears that investments in the M.T.C. and in the A.I.T.D.  will be inevitably promoted in popular holiday regions and islands, aggravating the current situation of dense housing and tourist building as well as the problem of oversupply of beds. Not to mention the unconstitutionality of authorizing productive use of residential facilities which are not included in the urban planning, as they are developed without prior urbanization.

      The first types of investment, the Areas of Integrated Tourism Development have not been tested in practice so as to know the effects it may produce in both the social and the economic environment of the tourist regions. As far as the second type of investment is concerned, in the Areas of Integrated Tourism Development (A.I.T.D.) there is only one example, that of the private A.I.T.D. of Messenia region (Costa Navarino Resort ), operated over the last three years. The main question about the specific types of investment is “what are the developmental benefits (at local and national level), since their complete development seems to entail the consummation of too precious natural resources due to their unorganized growth”.

Their adoption allows us to configure two important ascertainments:

• They refer to individual properties. Thus, they concern methods of urban development, not planning procedures that would ensure a well organized spatial planning of investments.
• Urban sprawl of tourism facilities is continued.

      Under these terms, it seems that the EP -T promotes a single horizontal adjustment of the organized receptors for tourist activities, especially in areas A and D. Without taking account of the oversupply of tourism beds, characterizing the country, and the need to redefine the existing ones by seeking alternatives.

1. 3.     Areas of Integrated Tourism Development

      Efforts to adapt sectoral policies to environmental issues have also attempted to bridge the gap between socio-economic programming and physical planning.         Since the main activity that is developed along the coast is tourism special efforts have been addressed towards the development of the economic activity itself (GNTO, 2011).  

One of the new tools recently introduced but not yet implemented is the creation of “Areas of Integrated Tourism Development”.  As Integrated tourism development areas are recognized:

• areas with significant tourism infrastructure where demand is quite important
• areas where tourism infrastructure is important, while natural environment is rather fragile and the demand is still high
• areas with important infrastructure and low demand.

      The creation of these areas aims on the one hand at the control of tourism development and on the other hand at the amelioration of tourism services, since in these areas it would be possible to provide adequate infrastructure and assure the provision of high quality services.

      It should be noted though that this system defines tourist capacities and limits based not upon the study of the carrying capacity of the natural system, but only on socioeconomic criteria. That is through areas of integrated tourism development of different tourism development levels are defined without reference to possible local natural particularities. Another comment to be made in this respect is that the goal of amelioration of quality is strictly related to the construction of hotels of a certain type -A, A'' class- and not to a broader perspective of social and environmental goals.

1. 4.     International Experience

      Historically, the first efforts towards integrated tourism development were made during the decade 1960-1970 in the Black Sea region (Bulgaria, Romania), in France  (Langeudoc Rousillon) and were followed by similar efforts elsewhere in the world, as in Santos Brazil, in Sousse of Tunesia, in Lorroto Nopolo of Mexico, etc (Mastny, 2001). However, all these projects were mainly dealing with “resort complexes" that included various types of tourist accommodation, with a capacity of 10,000 to 50,000 beds, flanked by shopping centers, sports centers and recreation facilities. Such prestigious constructions required the State’s dynamic intervention in terms of design, direct financing of the infrastructure as well as undertaking of promotional activities (Hall,2001).

      Conceptually, if the aforementioned cases refer to Areas of Integrated Tourism Development, the respective A.I.T.D. in Greece do not meet the specific criteria of the international ones, due to the following reasons:

1. Differentiated philosophy compared to the international experience
2. Limited spatial units
3. Small sized facilities
4. Small sized hotel units
5. Lack of macro – economic project analysis and conjunction with the local socio economic communities.

Consequently , it seems that  the Greek A.I.T.D. correspond rather to the idea of a holiday club or tourism enclave, although in reality they do not involve the characteristics of an enclave. “Enclaves” and “Third World model” are some of the expressions used to describe the concept of A.I.T.D. in Greece.

 

1. 5.     Tourist Enclaves 

      Enclave tourism is a form of self-contained resort development which is geographically isolated or insulated from the surrounding indigenous population. Such enclaves typically are coastal, offer amenities such as tennis, golf, scuba diving and horseback riding, and often contain landing strips for jets or smaller airplanes. Tourists who stay in such enclaves have no need to leave the complex as food, drink, and entertainment are provided by the resort. At all-inclusive resorts, such as Club Med, almost all daily needs and amenities are included in the overall price. Many enclave resorts in Third World and less developed destinations are associated with '4-S tourism' (sun, sand, sea and sex) (Lanfant, 1995).

      Enclave tourism has been studied from several perspectives, notably its role in economic development and social impacts. Resort enclaves in developing countries have traditionally been developed and owned by multinational firms, and thus the local economic benefits have been low (Cazes, 1988). Whereas foreign corporations have the capital to develop tourism facilities as well as the ability to bring in tourists by tapping into established marketing linkages, profits are subsequently taken out of the host country and there is little 'trickle down' into the local economy. In economic terms, enclave tourism has been described in terms of both vertical integration practices and also dependency theory.

      Enclave tourism allows virtually no host—guest interactions (see host and guest) and this has led to resentment by both the local population and the broader national community. Except for low-level resort staff and wealthier residents, the local population is generally banned from the resort complex premises (Cazes,1989). Enclave guests are segregated from the local culture and are especially shielded from the local informal sector which includes vendors, hustlers, drug dealers and prostitutes. At the local level, such segregation not only creates a wall between host and guest but also precludes economic benefits from filtering into the community. At the national level, such segregation is often regarded by the native population as a form of neo-colonialism (Cazes,1988). In a typological analysis of seaside resorts, an 'interactive' enclave resort category was recognized, in which tourists did experience a limited amount of interaction with the local population and levels of local resentment were lower than those surrounding totally self-contained complexes.

 

1. 6.     Reviewing the existing situation of tourism in Greece  

      Reviewing the Greek tourism model it is a fact that the destination characterized as a traditional holiday destination, where the predominant heliocentric model configures the existing situation and the perspectives of development. The main ascertainments will be presented below:

• The hosting capacity  of the Greek tourism product exceeds two million beds; 
  • The existing model of tourism development is the mass tourism model (4S- Model/ Ford  Model);
  •  A significant number of areas depend almost entirely (socially and economically) on tourism. As a result, the abandonment of productive activities can be witnessed in many places;
  •  The Greek tourism product is composed of infrastructure and services addressed mainly to mass tourism. The diversity and richness of natural cultural heritage offer however significant opportunities for alternative types of tourism which are gradually being developed;
  •  Lack of a comprehensive institutional framework for tourism development. The rapid growth of tourism in Greece – which derived from the government’s efforts to increase foreign tourist inflow was not accompanied by the development of an effective institutional framework for the management and planning of tourism (Varvaressos, 2011);
  •  The absence of any long-term planning in tourism development led to deficiencies in infrastructure and services (low-quality accommodation, insufficient infrastructures, lack of centers of information and problematic access in tourist regions). It is also important to mention the weaknesses in the upgrade of accommodation and other infrastructure until quite recently;
  •  Tourism growth is spatially located in certain regions of the country and is highly seasonal (in character), concentrating in the summer months, which leads to high pressures in tourist destinations and deterioration of the built and natural environment;
  •  The limited and inadequate promotion of tourism product and the intensification of international competition led to decreasing competitiveness of Greek tourism product;

 

         In spite of such deficiencies of Greek tourism, the wealth and diversity of the Greek natural and cultural heritage provide excellent opportunities for long term dynamic balanced growth.

 

6.1. The Structural problems of Greek Tourism

           

      Studies of the Greek tourist product show that the satisfaction derived from the consumption of tourist commodities and services decreases with time. The tourist product, to a great extent consisting of several banal/commonplace elements, fails to sustain a maximization of tourist/customer satisfaction, giving way to indifference and boredom. Therefore, the tourist product ought to be expanded, renewed and differentiated (Laws, 1995).

      If Greek tourism manages to survive international competition and remain a considerable contributor to economy (income, employment), it should restructure its product within the boundaries of a new model of development (Buhalis 2001, Tsartas 2003). The structural factors that dictate this are the following: 

(i)    The crisis was the consequence of a model for development which was pushed to its limits – a fact reflected in the excess offer of tourist accommodation. The increase in tourist accommodation in the coastal zone relied on the basic requirement that tourist demand would increase or maintain its levels. However, this prerequisite condition was not realised and this constituted the beginning of the decrease in quality, the latter being the result of a hotel type of crisis (additional/supplementary tourist accommodation, holiday homes, etc. which are difficult to record statistically) (Velas 2003, Morucci 2003). Thus, the increase in hotel accommodation cost led tourists to other types of accommodation of lower services and quality. The hotel crisis, through a process of excess offer in comparison to demand, may also be due to the ‘leakage’ of a number of customers, usually of high income, towards other destinations (Soteriades et al. 2005). The crisis of Greek tourism was defined from its beginning as a crisis of tourist accommodation spatially located in the coastal zone and restricted to the market limited by the 4S boundaries.

(ii)  The second problem of Greek tourism is associated with the offer of one and only product (4S) which had enabled the country to generate the tourist income necessary for its economic growth. Today, the 4S model seems to have reached a point of saturation (Arnaud & Kovacshazy 1998, Morucci 2003).

(iii) The third major structural cause of the crisis in Greek tourism may be the constant alteration of hosting areas and resorts, an alteration due to environmental, aesthetic and noise pollution, excessive concentration of reception facilities, inadequate quality of offered services and hygiene facilities, inadequate infrastructure, etc (Tsartas,1998: 21-41, Varvaressos, 2000: 87-119). All the above underscore a ‘suffering tourist development’ and constitute a serious inhibiting factor in the development of quality tourism.

(iv) The last cause worth considering which would be able to explain the structural crisis of Greek tourism is the absence of political sensitivity towards the tourist industry. Tourism in Greece is still centrally administered, both in spatial and functional terms, in the absence of decentralised and autonomous tourist organisation at regional and local level, as in the countries of Western Europe (Varvaressos, 2011).

 

 

1. 7.     Alternative Actions  – Measures

      In conclusion we summarize some of the action points, which should be adopted and practiced in growing tourism assumption. The strategies to implement The Special Framework for Spatial tourism planning, the role of Tourism Policy and local participation, are issues which need further investigation in each case. Also some key ideas provided as alternative actions and measures of tourism policy framework in order to differentiate and enhance the Greek tourism product. 

Action issues:

• establishment of strategic tourism policy framework and spatial planning
• work with the tourism industry to learn about the realities shaping available choices, while helping create an environment in which higher standards can be delivered
• integration of conservation of social and  environmental resources into all strategies and plans
• enhancement prospects of economic development and employment while maintaining protection of the environment sustainability in tourism and related activities
• strengthening of the coordination of tourism policy, planning development and management at both national and local levels

Adopting such alternative actions and measures as an alternative tourism model diversifying the existing one, aims to:

A)   ensure greater involvement of local population

B)   respect local scale regarding the range of activities and the host facilities

C)   respect the local heritage, natural and cultural, for economic, social and aesthetic purposes.

The outcomes sought could be the result of redefining tourism policy and redrawing the touristic sector in terms of planning and diversification. The implementation of such a policy may require the following measures:

-       legislative and regulatory

-       functional, technical and financial

Attainment, however, creates a number of problems, such as:

-       financial

-       commercialization

-       exploitation, management

Actually, the new draft law includes few of the aforementioned measures of spatial orientation, to render its application more effective.

Partial improvement of spatial planning could include the following:

• Creating a category of “rehabilitation hosting" in conformity to the relevant standards of EP- industry, so that developed tourism regions undergo real environmental and quality improvements (public investments in infrastructure and rehabilitation projects and, in general, public space arrangements).
• Establishing a new type of organized private urbanization, that is not based on the existing framework which has proved to be rigid. This specific kind of investment should be directly related to local development and social acceptance, not causing the reaction of the local population, as Fast –track investments do.
• Diversifying tourism development guidelines for the islands of the region (E11), as set by the new draft law of the Ministry of Tourism, where the various and different levels of tourism development make it virtually impossible to establish integrated horizontal arrangements.
• Therefore, those islands that already have dense tourism building should qualify as “developed regions” and adapt to the specific conditions as set by the aforementioned measures (A-D).

Basically, the new draft law does not provide a holistic approach on the tourism development of the country in terms of accommodation, through the promotion of the Modular Tourist Complexes (M.T.C.) and the Areas of Integrated Tourism Development (A.I.T.D.), which encourages a quantitative rather than qualitative approach, as it has an upward effect to the existing oversupply of tourism beds in the country.                                                                              

As opposed to the model of the Areas of Integrated Tourism Development, which enhances the existing tourist model without differentiating it, we suggested considering an "alternative" model and actions, that aims to take better advantage of appreciable yet abandoned traditional settlements of the country, and that, according to international experience, shows growing demand, based on cultural, natural and social environment.

The creation of specialized organizations such as AGEPOP in Senegal or other national organizations such as SEATM to develop mountain regions in France confirm the feasibility of a policy of diversification of the Greek tourist product. The implementation of such a policy, though it may seem difficult for Greece, it may be feasible if the tourism policy of the country acquires a new philosophy and new structures, in an attempt to redefine itself in the new international division of labor.

 

1. 8.     Conclusion

The Greek tourism product can be differentiated against other competitive products that have the same image, by highlighting elements related to cultural heritage, natural environment and humanity, which can be qualified as unique. Developing traditional buildings and residential complexes, which are characterized by their uniqueness and find themselves in a state of neglect and desolation, for the purposes of tourism, can contribute substantially to the diversification of the overall Greek tourism product. International experience can offer us many examples of alternative models of tourism development, by taking advantage of the existing tourist resources, as well as by taking particular account of the architectural aesthetics, the landscape and the spatial, social and economic adaptation of the project to the local characteristics etc.

 

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Ημερομηνία δημιουργίας

Δευτέρα 5 Μαΐου 2014