Biological
Diversity and tourism
The Conference of the
Parties
1.
Adopts the Guidelines on Biodiversity and Tourism
Development annexed to the present decision;
2.
Recognizing that
sustainable tourism can provide significant benefits to
biodiversity conservation, notes that the Guidelines are
voluntary and represent a range of opportunities for local,
regional, national Governments, indigenous and local communities
and other stakeholders to manage tourism activities in an
ecological, economic and socially sustainable manner;
3.
Recognizing that
these international guidelines have a broad application and
audience, requests the Executive Secretary, in order to
increase clarity and facilitate the detailed understanding of the
guidelines and the implementation by Parties and to identify and
address specific stakeholders, to:
(a) Develop a user's manual, checklists and,
on the basis of experience gained , including the contribution of
indigenous and local communities, produce and make available a
streamlined and user-friendly core set of improved voluntary
guidelines;
(b)
Prepare a glossary and definitions of terms used
in the Guidelines;
(c)
Promote the use of the
clearing-house mechanism to collect and disseminate information
on:
(i)
Specific case-studies on the implementation of
the Guidelines that make clearer reference to the use and
application of specific analytical management tools; and
(ii)
Best practices, lessons learned and case-studies
on the involvement of indigenous and local communities embodying
traditional lifestyles in sustainable-tourism and ecotourism
activities and projects;
4.
Aware that the Guidelines
should recognize and shall respect the rights of indigenous and
local communities, consistent with the provisions of the
Convention;
5.
Recalls Article 8(j) of the
Convention and related provisions and emphasizes that the Guidelines
on Biodiversity and Tourism Development should be consistent with
the Akwe: Kon Voluntary Guidelines for the Conduct of
Cultural, Environmental and Social Impact Assessment regarding
Developments Proposed to Take place on, or which Are Likely to
Impact on, Sacred Sites and on Lands and Waters Traditionally
Occupied or Used by Indigenous and Local Communities;
6.
Invites Parties, the Governments and relevant organizations
to implement pilot projects, also through public-private
partnerships as outlined in the World Summit on Sustainable
Development, to test the applicability of the Guidelines,
understand their practical implications and provide feedback on
their effectiveness (e.g. through the clearing-house
mechanism);
7.
Encourages
Parties, Governments and relevant organizations to establish
monitoring and reporting systems based on relevant indicators to
assess the applicability and status of implementation of the
Guidelines;
8.
Invites Parties, Governments and relevant organizations to
provide indigenous and local communities with capacity-building and
financial resources to support their active participation in
tourism policy-making, development planning, product
development and management indicated by the Guidelines and
invites non-Governmental organizations to continue and
increase their involvement in fostering effective policy-making for
sustainable tourism development;
9. In
light of the collaboration between the Convention on Biological
Diversity, the United Nations Environment Programme and the United
Nations Educational, Scientific and Cultural Organization,
invites the World Tourism Organization, the United Nations
Conference on Trade and Development, the United Nations Development
Programme, the World Bank, World Trade Organization, regional
development banks and other relevant international organizations,
to:
(a)
Take these Guidelines into
account in undertaking their activities;
(b) Provide
technical and financial assistance in the implementation of the
Guidelines and pay due regard to the Guidelines when preparing,
approving and funding tourism development projects having potential
implications on biological diversity, as also recommended in the
report of the Workshop on Tourism and Biodiversity, held in Santo
Domingo in June 2001. To this end, the Conference of the Parties
requests the Executive Secretary to forward the endorsed guidelines
to financing agencies, regional development banks and
developers;
10.
Invites all Governments to integrate these Guidelines in the
development or review of their strategies and plans for tourism
development, national biodiversity strategies and action plans, and
other related sectoral strategies, at appropriate levels in
consultation with interested stakeholders including tourism
operators and all members of the tourism sector;
11. Calls
for additional efforts to increase awareness and training on
the Guidelines and their applicability among the tourism sector and
other stakeholders;
12.
Invites the Executive
Secretary to report on progress made in the implementation and
improvement of the Guidelines, including the development of
relevant tools, to the Conference of the Parties at its eighth
meeting.
Annex
GUIDELINES ON BIODIVERSITY AND TOURISM DEVELOPMENT
International
guidelines for activities related to sustainable tourism
development in vulnerable terrestrial, marine and coastal
ecosystems and habitats of major importance for biological
diversity and protected areas, including fragile riparian and
mountain ecosystems
A.
Scope
1.
The present Guidelines are voluntary and represent a range of
opportunities for local, regional, national Governments, indigenous
and local communities and other stakeholders to manage tourism
activities in an ecological, economic and socially sustainable
manner. They can be flexibly applied to suit different
circumstances and domestic institutional and legal settings.
2. The Guidelines
will assist Parties to the Convention on Biological Diversity,
public authorities and stakeholders at all levels, to apply the
provisions of the Convention to the sustainable development and
management of tourism policies, strategies, projects and
activities. They will provide technical guidance to policy
makers, decision makers and managers with responsibilities covering
tourism and/or biodiversity, whether in national or local
Government, the private sector, indigenous and local
communities, [54]/
non-Governmental organizations or other organizations, on a process
for working together with key stakeholders involved in tourism and
biodiversity.
3. The Guidelines
cover all forms and activities of tourism. These activities
should be consistent with the principles of conservation and
sustainable use of biological diversity. These include, but
are not limited to, conventional mass tourism, ecotourism, nature-
and culture-based tourism, heritage and traditional tourism, cruise
tourism, leisure and sports tourism. Although the primary
focus of the Guidelines is vulnerable ecosystems and habitats, they
are also appropriate for tourism with impact on biodiversity in all
geographical locations and tourist destinations. The guidelines on
Biodiversity and Tourism Development can also play a crucial role
in incorporating sustainable use and equity strategies within and
around protected areas. Furthermore the Guidelines recognize
the need for collaboration between originating and receiving
countries and should be used to balance local interests and
national, regional and international policies.
B. The
policy-making, development planning and management
process
4. The main
elements considered in developing the Guidelines are:
(a)
Framework for management of tourism and biodiversity;
(b)
Notification process in relation to such a management
framework;
(c) Public
education, capacity-building and awareness-raising concerning
tourism and biodiversity.
5. Policy-making,
development planning and the management process need to be
undertaken through a multi-stakeholder process. Governments
will normally coordinate this process at national level. This
process may also be undertaken at more local levels by local
Government, and should ensure strong involvement of indigenous and
local communities throughout the management and decision-making
process. In addition, those responsible for tourism
development and activities are encouraged to consult with and
involve all relevant stakeholders, and especially those who are or
may be affected by such developments and activities. The
process applies to both new tourism development and the management
of the existing tourism operations.
Institutions
6. In order to
ensure coordination between the levels of decision-making in
Government departments and agencies concerned with management of
biological diversity and tourism as well as agencies responsible
for broader national economic development, inter- and
intra-departmental and inter-organizational structures and
processes should be established, if they do not already exist, to
guide policy development and implementation.
7. There is a need
to improve awareness and exchange of knowledge between those
responsible for and affected by tourism and nature conservation at
a national, subnational and local level. In addition,
national biodiversity strategies and action plans should include
consideration of tourism issues, and tourism plans should likewise
include full consideration of biodiversity issues. Existing
documents, strategies and plans should be coherent or revised and
amended to that effect as applicable.
8. A consultative
process should be established to ensure ongoing and effective
dialogue and information-sharing with stakeholders, as well as to
resolve conflicts that might arise inrelation to tourism and
biological diversity and build consensus. To assist in this
process, a multi‑stakeholder body should be established
including Government departments, the tourism sector,
non-Governmental organizations, indigenous and local communities
and other stakeholders, to ensure their engagement and full
participation in the whole process, and encourage the establishment
of partnerships.
9. The
institutional arrangements should provide for the comprehensive
involvement of stakeholders in the management process described in
these Guidelines.
10. Authorities and
managers of protected areas have a special role for the management
of tourism and biodiversity. To this end, there is a need for
Government support and resources for managers, including training
to perform their role effectively. In addition, it is
necessary to establish and review mechanisms and funding policies
to ensure the availability of adequate resources for maintaining
biodiversity and promoting sustainable tourism. International
institutions and development agencies should be involved as
appropriate.
11. To be sustainable,
tourism development in any destination requires coordinated
policy‑making, development planning and management. The
policy-making, development planning and management process
comprises the following steps:
(a) Baseline
information and review;
(b) Vision
and goals;
(c)
Objectives;
(d) Review
of legislation and control measures;
(e) Impact
assessment;
(f) Impact
management and mitigation;
(g)
Decision-making;
(h)
Implementation;
(i)
Monitoring and reporting;
(j)
Adaptive management.
1.
Baseline information
12.
Baseline information is necessary to enable informed decisions to
be taken on any issue. A minimum of baseline information is needed
to enable impact assessment and decision-making and it is
recommended that its compilation follow the ecosystem approach.
13.
For tourism and biodiversity, the baseline information should
include information, as appropriate, on:
(a)
Current economic, social and environmental
conditions at national and local level, including current and
planned tourism development and activities and their overall
positive and negative impacts, as well as development and
activities in other sectors;
(b)
Structure and trends within the tourism sector,
tourism policy and tourism markets and trends, at national,
regional and international level, including information based on
market research as necessary;
(c)
Environmental and biodiversity resources and
processes, including any special features and sites of particular
importance and protected areas, and identifying those resources
that may be off bounds to development due to their particular
fragility and those resources identified by existing analysis of
threats;
(d)
Culturally sensitive areas;
(e)
Benefits from, and costs of, tourism to
indigenous and local communities;
(f)
Information on damage done to the environment in
the past;
(g)
National biodiversity strategies, action plans
and reports and other sectoral plans and policies relevant for
tourism development and biodiversity;
(h)
National, subnational and local
sustainable-development plans.
14. Baseline information
should take into consideration all sources of knowledge. The
adequacy of the baseline information available will need to be
reviewed, and where necessary, further research and
information-gathering can be undertaken to fill gaps that may be
identified.
15. All stakeholders may
contribute relevant information to this process, including
indigenous and local communities. To this end, there is a need for
capacity-building and training to assist stakeholders in
documenting, accessing, analysing and interpreting baseline
information.
16. Collation and
synthesis of information provided will need to be undertaken by an
appropriately qualified team, drawing on a range of expertise,
including expertise in tourism and in biodiversity issues, and in
traditional knowledge and innovation systems.
17. In order to ensure
that all relevant information, its credibility and reliability, are
considered, all stakeholders should be involved in review of the
collated baseline information available, and in the synthesis of
this information.
18. Baseline information
should include maps, geographical information systems and other
visual tools, including already identified zoning schemes.
19. The baseline
information-gathering and review process should make full use of
the clearing-house mechanism under the Convention on Biological
Diversity, as well as other relevant networks such as the World
Network of Biosphere Reserves, World Heritage sites and Ramsar
sites.
20. Requirements for
site-specific information in relation to proposals for tourism
development and activities at particular locations are set out in
the notification process, and its compilation should follow the
ecosystem approach. To enable impact assessment and decision
making, the basic information required includes:
(a)
Site-specific aspects:
(i)
The various laws and regulations and plans that
may be applicable to the specific site, including overviews
of:
a.
Existing laws at local, subnational and national
levels;
b.
Existing uses, customs and
traditions;
c.
Relevant regional and international conventions
or agreements and their status, and cross-boundary agreements or
memoranda of understanding (MoUs);
(ii)
Identification of various stakeholders involved
in or potentially affected by the proposed project - including
stakeholders in Governmental, non-Governmental, and private sectors
(particularly those from the tourism sector), and indigenous and
local communities - along with details concerning their
participation in and/or consultation on the proposed project during
its design, planning, construction and operation;
(b)
Ecological aspects:
(i)
Detailed indication of the protected and
biodiversity significant areas;
(ii)
Specifications on the ecosystems, habitats,
species;
(iii)
Quantitative and qualitative information on the
loss of habitats and species (main reasons, trends);
(iv)
Indexing of species;
(v)
Identified threats;
(vi)
Existing zones, ecological zones and existing
tourism zones within the ecological zones;
(vii)
Ecologically sensitive zones and zones where
ecological disasters have or will most likely take
place;
(c)
Development aspects:
(i)
Summary of the proposed project, why and by whom
it is proposed, estimated outcomes and possible impacts (including
impacts on the surrounding areas and transboundary impacts), and
quantitative and qualitative data on these aspects;
(ii)
Description of the stages of development and the
various structures and stakeholders that may be involved at each
stage;
(iii)
Description of current land-uses,
infrastructures, tourism facilities and services and their
interaction with proposed operations.
2. Vision and
goals
Vision
21. An overall vision for
sustainable tourism development in harmony with the goals and
objectives of the Convention on Biological Diversity and other
related conventions, such as the World Heritage Convention, is
important for the effective management of tourism and biodiversity,
and for ensuring that this also contributes to income generation
and poverty reduction and a reduction of threats to
biodiversity. The vision developed at the local level, while
reflecting local priorities and realities, should take into
account, as appropriate, national and regional tourism development
strategies, policies and plans for economic and social development
and for land-use, as well as the baseline information and
review. It should be based on a multi-stakeholder process
including indigenous and local communities that are or may be
affected by tourism development.
Goals
22.
The main goals are established to maximize the positive benefits of
tourism to biodiversity, ecosystems, and economic and social
development, and of biodiversity to tourism, while minimizing
negative social and environmental impacts from tourism, and can
cover, inter alia:
(a)
Maintenance of the structure and functioning of
ecosystems;
(b)
Sustainable tourism compatible with biodiversity
conservation and sustainable use;
(c)
Fair and equitable sharing of benefits of
tourism activities, with emphasis on the specific needs of the
indigenous and local communities concerned;
(d)
Integration and interrelation with other plans,
developments or activities in the same area;
(e)
Information and capacity-building;
(f)
Poverty reduction, through the generation
of sufficient revenues and employment to effectively reduce threats
to biodiversity in indigenous and local communities;
(g)
Protection of indigenous livelihoods, resources
and of access to those resources;
(h)
Diversification of economic activities beyond
tourism to reduce dependency on tourism;
(i)
Prevention of any lasting damage to biological
diversity, ecosystems, and natural resources, and of social and
cultural damage, and restoration of past damage where
appropriate;
(j)
Supporting the effective participation and
involvement of representatives of indigenous and local communities
in the development, operation and monitoring of tourism activities
on lands and waters traditionally occupied by them
(k)
Zoning and control of tourism developments and
activities, including licensing and overall targets for and limits
to the scale of tourism, to provide a range of activities for user
groups that meet overall visions and goals;
(l)
Empowerment through participation in
decision-making;
(m)
Access by indigenous and local communities to
infrastructure, transport, communications and healthcare provisions
laid on for tourists;
(n)
Increased safety for indigenous local
communities;
(o)
Increased social pride;
(p)
Control of tourism development and activities
including licensing and clear indication on the limits to the scale
and type of tourism development.
23.
In relation to sharing of benefits arising from tourism and the
conservation of biodiversity with indigenous and local communities,
it should be noted that benefits may take various forms, including:
job creation, fostering local enterprises, participation in tourism
enterprises and projects, education, direct investment
opportunities, economic linkages and ecological services.
Appropriate mechanisms need to be established/ evolved to capture
the benefits.
24. The vision and goals
will form the basis of national strategies or master plans for
sustainable development of tourism in relation to
biodiversity. Such plans should also incorporate
consideration of biodiversity strategies and plans. In
addition, biodiversity strategies and plans should include
consideration of tourism issues.
25. Governments will
normally coordinate this process at national level. This
process may also be undertaken at more local levels by local
Government, and by communities at community level. Where local and
community level vision and goals for tourism and biodiversity have
been set, these may be taken into account by Governments when
preparing the national level vision and goals, for example through
workshops at the local level.
3.
Objectives
26. The objectives focus
on actions to implement specific elements of the overall vision and
goals, and may include clear activities and the time by which these
will be achieved. Objectives should be performance-based
(e.g., construction of an interpretative trail to aid development
of local guide services) and process-based (e.g., establishment of
an operational management system for tourism and
biodiversity). As with the vision and goals, it is important
to involve and consult with all relevant stakeholders, and
especially the tourism industry and indigenous and local
communities that are or may be affected by tourism development, in
the process for setting objectives.
27. Objectives should be
specific and should include specific areas identified in clearly
delineated zones listing the types of activities and infrastructure
that would be acceptable and should be developed. It should also
outline the impact management measures that would be appropriate,
and intended markets (with greater detail, as set out in the
notification process, being required for proposals for tourism
development or activities at specific locations).
28.
Governments may also wish to consider:
(a)
Measures to ensure that sites designated at
international level, such as Ramsar or World Heritage sites or
Biosphere Reserves, are accorded appropriate legal recognition and
Government assistance at the national level;
(b)
Establishing reserves based on the biosphere
reserve concept and incorporating sustainable-development
objectives, generating income and employment opportunities for
indigenous and local communities, and promoting appropriate product
development;
(c)
Measures to ensure that sites, at the national
level, such as national parks, reserves and marine conservation
areas are accorded appropriate legal recognition, have management
plans and are provided necessary Government support;
(d)
Strengthening the protected area network and
encouraging the role of protected areas as key locations for good
practices in the management of sustainable tourism and
biodiversity, taking into account the full range of protected area
categories;
(e)
Use of political and economic tools and measures
to encourage the channelling of part of total tourism revenues
towards supporting the conservation and sustainable use of
biodiversity, such as conservation of protected areas, education,
research programmes, or local community development;
(f)
Encouraging all stakeholders, as well as the
private sector, to actively support the conservation of
biodiversity and the sustainable use of its
components.
29.
Governments will normally coordinate this process at national
level. This process may also be undertaken at more local
levels by local Government, and by communities at community
level. Where local- and community-level objectives for
tourism and biodiversity have been set, these may be taken into
account by Governments when preparing national level
objectives.
4. Legislation and
control measures
30. Respect for existing
national legislation and appropriate regulatory mechanisms and
tools, such as land-use planning, protected area management plans,
environmental assessment, building regulations and standards for
sustainable tourism, are essential for the effective implementation
of any overall vision, goals, and objectives. A review of
legislation and control measures could consider, as appropriate,
the legislation and control measures available for implementation
of the overall vision, goals and objectives for tourism and
biodiversity, their effectiveness, including enforcement, and any
gaps that may need to be addressed for example, by revision
of-or the development of additional-legislation and
control measures.
31. The review of
legislation and control measures may include, inter alia,
assessment of the effectiveness of any provisions for resource
management, access, and/or ownership by communities, especially
indigenous and local communities in relation to tourism development
or operations on lands and waters traditionally occupied or used by
them;; addressing legally established rights of indigenous and
local communities; and enabling these groups to make decisions
about tourism development and activities, amongst other forms of
development and activities, in these areas.
32.
Legislation and control measures considered could include measures
for:
(a)
Effective enforcement of existing laws,
including the participation of all stakeholders;
(b)
Approval and licensing processes for tourism
development and activities;
(c)
Controlling the planning, siting, design and
construction of tourism facilities and infrastructures;
(d)
Management of tourism in relation to
biodiversity and ecosystems, including vulnerable areas;
(e)
Application of environmental assessment,
including assessment of cumulative impacts and effects on
biodiversity, to all proposed tourism developments, and as a tool
to develop policies and measure their impacts;
(f)
Setting national standards and/or criteria for
tourism that are consistent with overall national or regional plans
for sustainable development and national biodiversity strategies
and action plans:
(i)
Environmental quality and land-use criteria in
and around tourism sites;
(ii)
Development of a decision-making process with
environmental and cultural sustainability guidelines for new and
existing tourism development within the designated goals and
objectives of the site's different zones and within the
limits of acceptable change;
(g)
Integrated land-use management;
(h)
Ensuring inter-linkages between tourism and
cross-cutting issues, including agricultural development, coastal
zone management, water resources, etc.;
(i)
Mechanisms to resolve any inconsistencies
between policy objectives and/or legislation in a manner that takes
into account the interests of all stakeholders;
(j)
Application of economic instruments, including
tiered user fees, bonds, taxes or levies, for the management of
tourism and biodiversity;
(k)
Creating incentives for sustainable tourism
development in line with the provisions of the Convention on
Biological Diversity and Agenda 21 through relevant economic
mechanisms;
(l)
Supporting private sector voluntary initiatives
consistent with these Guidelines, such as certification schemes and
providing opportunities for the private tourism sector to
contribute to management initiatives through direct donations,
in-kind services, and other voluntary initiatives consistent with
these Guidelines, and relevant policies;
(m)
Avoiding tourism development or activities
outside those areas set out in the objectives;
(n)
Monitoring, control of and provision of
information on activities related to collection and trade of
biological and related cultural resources within tourism
sites.
33.
Governments will normally coordinate this process at the national
level. It is important to involve and consult with all
relevant stakeholders, and especially indigenous and local
communities that are or may be affected by tourism development, in
the process for reviewing legislation and control measures,
assessing their adequacy and effectiveness, and proposing
development of new legislation and measures where necessary.
5. Impact
assessment
34.
Impact assessment for sustainable tourism development in ecosystems
should be based on the "Guidelines for incorporating
biodiversity related issues into environmental impact assessment
legislation and/or processes and in strategic environmental
assessment" developed by the Convention on Biological
Diversity and contained in the annex to decision VI/7 A
(paras. 1‑24) as well as on the Akwe: Kon
voluntary guidelines for the
conduct of cultural, environmental and social impact assessment
regarding developments proposed to take place on, or which are
likely to impact on, sacred sites and on lands and waters
traditionally occupied or used by indigenous and local communities
(as contained in section F of decision VII/16).
35. At national level,
Governments should normally undertake assessment of impacts
associated with the overall vision, goals and objectives for
tourism and biodiversity. In addition, this process may also
be undertaken at more local levels by local Government, and by
indigenous and local communities.
36.
Proposers of tourism developments or activities should assess the
potential impacts of their proposals and provide information on
this through a notification process.
37. Governments will
normally undertake evaluations of the adequacy of impact
assessments submitted by proposers of tourism developments or
activities. These evaluations will need to be undertaken by
an appropriately qualified team, drawing on a range of expertise,
including expertise in tourism and in biodiversity management, and
also involving those indigenous and local communities that would be
affected by the proposals. There should be public access to the
documentation.
38. If the information
provided is not sufficient, or the impact assessment inadequate,
then further impact assessment studies may need to be
undertaken. The proposer may be requested to undertake such
studies, or the Government may decide to undertake these studies,
and may request funds from the proposer for this purpose, as
appropriate. Other stakeholders, including biodiversity
managers and indigenous and local communities that may be affected
by a proposed development, may also provide their assessments of
impacts associated with specific proposals for tourism developments
or activities, and provisions may be needed to ensure that any such
assessments are taken into account by decision-makers.
39. Indigenous and local
communities concerned should be involved in impact assessment.
Their traditional knowledge should be acknowledged and considered
for impact assessment in particular tourism projects that affect
their sacred sites or lands and waters traditionally occupied or
used by them.
40. Sufficient time
should be allowed considering the different conditions and
circumstances to ensure that all stakeholders are able to
participate effectively in the decision-making process for any
project using information provided by the impact assessment.
Such information should be provided in forms that are accessible
and comprehensible to all the various stakeholders involved.
41.
Impacts of tourism in relation to the environment and biological
diversity may include:
(a)
Use of land and resources for accommodation,
tourism facilities and other infrastructure provision, including
road networks, airports and seaports;
(b)
Extraction and use of building materials (e.g.,
use of sand from beaches, reef limestone and wood);
(c)
Damage to or destruction of ecosystems and
habitats, including deforestation, draining of wetlands, and
intensified or unsustainable use of land;
(d)
Increased risk of erosion;
(e)
Disturbance of wild species, disrupting normal
behaviour and potentially affecting mortality and reproductive
success;
(f)
Alterations to habitats and
ecosystems;
(g)
Increased risk of fires;
(h)
Unsustainable consumption of flora and fauna by
tourists (e.g., through picking of plants; or purchase of souvenirs
manufactured from wildlife, in particular such endangered species
as corals and turtle shells; or through unregulated hunting,
shooting and fishing);
(i)
Increased risk of introduction of alien
species;
(j)
Intensive water demand from tourism;
(k)
Extraction of groundwater;
(l)
Deterioration in water quality (freshwater,
coastal waters) and sewage pollution;
(m)
Eutrophication of aquatic habitats;
(n)
Introduction of pathogens;
(o)
Generation, handling and disposal of sewage and
waste-water;
(p)
Chemical wastes, toxic substances and
pollutants;
(q)
Solid waste (garbage or rubbish);
(r)
Contamination of land, freshwater and seawater
resources;
(s)
Pollution and production of greenhouse gases,
resulting from travel by air, road, rail, or sea, at local,
national and global levels;
(t)
Noise.
42.
Socio-economic and cultural impacts related to tourism may
include:
(a)
Influx of people and social degradation (e.g.
local prostitution, drug abuse, etc.);
(b)
Impacts on children and youth;
(c)
Vulnerability to the changes in the flow of
tourist arrivals which may result in sudden loss of income and jobs
in times of downturn;
(d)
Impacts on indigenous and local communities and
cultural values;
(e)
Impacts on health and the integrity of local
cultural systems;
(f)
Intergenerational conflicts and changed gender
relationships;
(g)
Erosion of traditional practices and
lifestyles;
(h)
Loss of access by indigenous and local
communities to their land and resources as well as sacred sites,
which are integral to the maintenance of traditional knowledge
systems and traditional lifestyles.
43.
The potential benefits of tourism may include:
(a)
Revenue creation for the maintenance of natural
resources of the area;
(b)
Contributions to economic and social
development, for example:
(i)
Funding the development of infrastructure and
services;
(ii)
Providing jobs;
(iii)
Providing funds for development or maintenance
of sustainable practices;
(iv)
Providing alternative and supplementary ways for
communities to receive revenue from biological
diversity;
(v)
Generating incomes;
(vi)
Education and empowerment;
(vii)
An entry product that can have direct benefits
for developing other related products at the site and
regionally;
(viii)
Tourist satisfaction and experience gained at
tourist destination.
6. Impact
management and mitigation
44. Impact management is
essential to avoid or minimize any potential damage to biodiversity
conservation and sustainable use that tourism development or
activities might cause. Proposals for tourism development or
activities may incorporate proposals for impact management, but
these may not necessarily be judged sufficient to deal with
potential impacts on biodiversity. Therefore all
stakeholders, and especially Governments that exercise overall
control over tourism development and activities, will need to
consider the various impact management approaches that may be
necessary in any given situation. In particular, Governments should
be aware that the tourism industry could provide a direct impetus
for conservation of vulnerable ecosystems by supporting sustainable
tourism activities that have a direct commercial interest in
maintaining the vulnerable ecosystem in a good condition.
45. Tourism should be
planned and managed using the internationally accepted planning
methodologies (such as the Recreation Opportunity Spectrum and the
Limits of Acceptable Change). In vulnerable ecosystems, based on
these methodologies and relevant background information, tourism
should be restricted and where necessary prevented.
46. Impact management can
include, inter alia, measures for the siting of tourism
development and activities, including establishing appropriate
activities in different designated zones, differentiation between
the impacts of different types of tourism, and measures to control
tourist flows in and around tourist destinations and key sites, to
promote appropriate behaviour by tourists so as to minimize their
impacts, and to establish limits to numbers of visitors and their
impacts within Limits of Acceptable Change at any site.
47. Impact management in
relation to transboundary ecosystems and migratory species requires
regional cooperation.
48. There is a need to
identify those who will be responsible for implementing impact
management and the resources that will be required for impact
management.
49.
Impact management for tourism development and activities can
include the adoption and effective implementation of policies, good
practices and lessons learned that cover, inter alia:
(a)
Controlling impacts of major tourist flows
including excursions, cruise ships, etc., which can cause serious
effects on destinations even though they are visited for only short
periods;
(b)
Reducing impacts of activities outside tourism
areas on adjacent and other ecosystems of importance for tourism
(e.g., pollution from nearby farming activities or extractive
industries may affect areas of tourism development);
(c)
Responsible use of natural resources (e.g.,
land, soil, energy, water);
(d)
Reducing, minimizing and preventing pollution
and waste (e.g. solid and liquid waste, emissions to air,
transport);
(e)
Promoting the design of facilities that are more
eco-efficient, which adopt the cleaner production approach, and use
environmentally sound technologies, in particular to reduce
emissions of carbon dioxide and other greenhouse gases and
ozone-depleting substances, as set out in international
agreements;
(f)
Conserving flora, fauna and
ecosystems;
(g)
Preventing the introduction of alien
species as a result of the construction, landscaping and operating
of tourism activities, including for example from shipping
associated with tourism;
(h)
Conserving landscapes, cultural and natural
heritage;
(i)
Respecting the integrity of local cultures and
avoiding negative effects on social structures, involving, and
cooperating with, indigenous and local communities, including
measures to ensure respect for sacred sites and customary users of
these sites, and to prevent negative impacts on them and on lands
and waters traditionally occupied or used by them, as well as on
their subsistence resources;
(j)
Using local products and skills, and providing
local employment;
(k)
Promoting appropriate behaviour by tourists so
as to minimize their adverse impacts, and to promote positive
effects through education, interpretation, extension, and other
means of awareness‑raising;
(l)
Alignment of marketing strategies and messages
with the principles of sustainable tourism;
(m)
Contingency plans for handling accidents,
emergencies or bankruptcies that may occur during construction and
use of facilities and which may threaten the environment and the
conservation and sustainable use of biodiversity;
(n)
Environmental and cultural sustainability audits
and review of existing tourism activities and developments and of
the effectiveness with which impact management is being applied to
existing tourism activities and
developments;
(o)
Mitigation measures for existing impacts, and
appropriate funding to support them. Such measures should
include development and implementation of compensation measures in
cases when tourism has resulted in negative environmental,
cultural, and socio-economic effects, taking into consideration the
range of redress and compensation measures.
50. Governments, in
cooperation with biodiversity managers, those communities that
would be affected by the proposals, and other stakeholders, would
normally assess the need for impact management in addition to any
management measures included in the proposals under consideration.
All stakeholders should understand the importance of such impact
management.
51. The tourism industry
can assist in promoting corporate policies on sustainable tourism
and biodiversity, with defined goals, monitoring and reporting
their progress publicly on a regular basis.
7.
Decision-making
52.
Decisions will be made concerning approval or otherwise of,
inter alia:
(a)
National strategies and plans for tourism and
biodiversity;
(b)
Proposals for tourism development and activities
at particular locations in relation to biodiversity, which are to
be submitted through the notification process;
(c)
Adequacy of impact management measures in
relation to anticipated impacts from tourism development and
activities;
(d)
Adequacy and frequency of monitoring and
reporting.
53. Such decisions will
ultimately be taken by Governments (or specific authorities
designated by Governments). It is recognized, however, that
effective consultation with and participation of the communities
and groups affected, including specific input from biodiversity
managers, and from indigenous and local communities as well as the
private sector in a broad sense, is an important foundation of the
decision-making process and critical to sustainable
development. Decision makers should consider using
multi-stakeholder processes as a tool for the decision-making
process.
54. The decision-making
process should be transparent, accountable, and apply the
precautionary approach. Legal mechanisms should be put in
place for notification and approval of tourism development
proposals and for ensuring implementation of the conditions of
approval of development proposals.
55. For proposals for
tourism development and activities at particular locations, the
proposers will normally be required to provide the information set
out in the notification process. This should apply equally to
public-sector development and infrastructure projects, as well as
to private-sector development. Impact assessment should be a
component of any decision-making process.
56. Measures should be
taken to ensure full and timely disclosure of project information
concerning tourism development proposals. Consistent with
Article 8(j), decision-making should include meaningful
consultation with indigenous and local communities affected by
projects in order to ensure, inter alia, respect for the
customs and traditional knowledge, innovations and practices of
indigenous and local communities, and adequate funding and
technical support for effective participation. Where the
national legal regime requires prior informed consent of indigenous
and local communities with respect to decisions identified in
paragraph 52, such prior informed consent must be obtained.
57. Decisions should
include a review of the adequacy of information available, that
could cover, inter alia, baseline information, impact
assessment, and information on the proposed tourism development or
activity, its nature and size, the type(s) of tourism involved, and
information on human settlements and communities that may be
affected.
58. In cases where there
is not sufficient contextual/baseline information available at the
time, or where the overall vision, goals and objectives for tourism
and biodiversity have not been developed sufficiently to make a
decision, decisions may be deferred pending sufficient information
being obtained, and/or completion of overall plans/goals.
59. In making a decision,
conditions may be attached to any approvals that may be granted,
including conditions regarding management of tourism in relation to
avoidance or minimization of adverse impacts on biodiversity, and
for appropriate decommissioning of tourism activities should the
development cease. Decision makers may also, as appropriate,
request further information from a proposer; defer a decision
pending further baseline research by other agencies; or refuse a
proposal.
8.
Implementation
60. Implementation
follows a decision to approve a particular proposal, strategy or
plan. Unless otherwise stated, the developer and/or operator
will be responsible for complying with the conditions for granting
the approval; and, as part of this process, they can also be
required to notify the designated Government authority of any
failures to comply with conditions attached to an approval,
including conditions for decommissioning, and/or of any changes in
circumstances, including unforeseen environmental conditions and/or
biodiversity issues (e.g., detection of rare or endangered species
not recorded in the original proposal and impact assessment).
61. Any revisions or
changes to an approved project, including additions and/or
variations of activities, must be approved by the designated
authorities before construction.
62. Implementation plans
should recognize that indigenous and local communities and other
relevant stakeholders may require assistance as actors in
implementation, and should ensure that sufficient resources are
available for implementation and for effective participation.
63. Local stakeholders
should be given an ongoing opportunity to express their wishes and
concerns to those managing tourism facilities and
activities. As part of this process, clear and adequate
information regarding implementation should be provided for review
by the stakeholders, in forms that are accessible and
comprehensible to them.
64. Availability of
information on policies, programmes, projects, and their
implementation, including information on existing and future
guidelines, should be ensured and exchange of information fostered,
for example, through the clearing house mechanism of the Convention
on Biological Diversity.
65. It is necessary to
establish a monitoring and control system for the management of
tourism activities and biological diversity. Long-term
monitoring and assessment are necessary in relation to the impacts
of tourism on biodiversity, and will need to take into account the
timescale for ecosystem changes to become evident. Some
effects may develop quickly, while others may take place more
slowly. Long-term monitoring and assessment provide a means
for detecting adverse effects that may arise from tourism
activities and development in relation to biodiversity, so that
action can be taken to control and mitigate such effects.
66. Monitoring and
surveillance in relation to management of tourism and biodiversity
includes, inter alia, the following main areas:
(a)
Implementation of approved tourism developments
or activities, and compliance with any conditions attached when
approval was granted, and taking appropriate actions in cases of
non-compliance;
(b)
Impacts of tourism activities on biodiversity
and ecosystems, taking appropriate preventative actions as
necessary;
(c)
Impacts of tourism on the surrounding
population, especially indigenous and local communities;
(d)
General tourism activities and trends, including
tour operations, tourism facilities, and tourist flows in
originating and receiving countries, including progress towards
sustainable tourism;
(e)
Clearly defined objectives, actions and targets
for conservation or mitigation of threats to biodiversity,
maintenance or restoration of ecosystems and for
tourism;
(f)
Compliance with, and enforcement as necessary,
of conditions attached to any approval. Communities and other
interested stakeholders may also monitor and report their findings
to the designated Government authorities.
67. Developers and
operators of tourism facilities and activities should be required
to report periodically to designated authorities and to the public
on compliance with conditions set out in approvals, and on the
condition of biodiversity and the environment in relation to the
tourism facilities and activities for which they are
responsible.
68. Prior to the
commencement of any new tourism development or activities, an
inclusive monitoring and reporting system should be put in place,
with indicators to track how tourism actions are mitigating threats
to biodiversity, along with agreed upon quantifiable standards
indicating thresholds of acceptable change. These should be
developed in conjunction with all key stakeholders including
indigenous and local communities.
69. Indicators to
cover aspects of management of biodiversity and sustainable
tourism, including socio-economic and cultural aspects, should be
identified and monitored at global, national, and local levels, and
should include, but not be limited to, the following:
(a)
Conservation of
biodiversity;
(b)
Generation of income and employment
from tourism (long-term and short-term);
(c)
Proportion of tourism income
retained in the local community;
(d)
Effectiveness of multi-stakeholder
processes for management of biodiversity and sustainable
tourism;
(e)
Effectiveness of
impact management;
(f)
Contribution of tourism to the
well-being of the local population;
(g)
Visitor impacts and visitor
satisfaction.
70. Monitoring results
depend largely on the appropriate set of data to be collected.
Guidelines on how to collect data in a way that can be used to
evaluate change over time should be developed. Monitoring could
follow a standard process and format, and be based on a framework
including parameters on social, economic, environmental and
cultural impact.
71. Monitoring and
surveillance in relation to biodiversity impacts should include
activities undertaken to ensure respect for endangered species
under relevant international agreements, prevention of the
introduction of alien species as a result of tourism activities,
compliance with national rules concerning access to genetic
resources, and prevention of illegal and unauthorised removal of
genetic resources.
72. In relation to
indigenous and local communities, monitoring and evaluation should
include development and use of appropriate tools to monitor and
evaluate tourism impacts on the economy of indigenous and local
communities, particularly their food and health security,
traditional knowledge, practices and customary livelihoods.
Use of indicators and early warning systems should be developed as
appropriate, taking into account traditional knowledge, innovation
and practices of indigenous and local communities, and guidelines
developed under the Convention on Biological Diversity relating to
traditional knowledge. Measures should also be taken to
ensure that indigenous and local communities involved in, or
affected by tourism, have the opportunity to be involved
effectively in monitoring and evaluation.
73. Monitoring of general
environmental and biodiversity conditions and trends, as well as
tourism trends and impacts, can be undertaken by Governments,
including designated biodiversity managers. Management
measures may need to be adjusted, as appropriate, where adverse
impacts on biodiversity and ecosystems are detected. The need
for and nature of such adjustments will be based on the results of
monitoring, and it is important for these to be determined in
dialogue with all relevant stakeholders, including the developers
and/or operators of tourism facilities and activities, communities
affected by those facilities and activities, and other interested
stakeholders. The monitoring process needs to be
multi-stakeholder and transparent.
74.
The ecosystem approach requires adaptive management to deal with
the complex and dynamic nature of ecosystems and the absence of
complete knowledge or understanding of their functioning.
Ecosystem processes are often non-linear, and the outcome of such
processes often shows time-lags. The result is
discontinuities, leading to surprise and uncertainty.
Management must be adaptive in order to be able to respond to such
uncertainties and contain elements of
"learning-by-doing" or research feedback.
Measures may need to be taken even when some cause-and-effect
relationships are not yet fully established
scientifically. [55]/
75. Ecosystem processes
and functions are complex and variable. Their level of
uncertainty is increased by the interaction with social constructs,
which need to be better understood. Therefore, ecosystem
management must involve a learning process, which helps to adapt
methodologies and practices to the ways in which these systems are
being managed and monitored. Adaptive management should also
take the precautionary approach fully into account.
76. Implementation
programmes should be designed to adjust to the unexpected, rather
than to act on the basis of a belief in certainties.
77. Ecosystem management
needs to recognize the diversity of social and cultural factors
affecting natural-resource use and sustainability.
78. Similarly, there is a
need for flexibility in policy-making and implementation.
Long‑term, inflexible decisions are likely to be inadequate
or even destructive. Ecosystem management should be envisaged
as a long-term experiment that builds on its results as it
progresses. This 'learning-by-doing" will also
serve as an important source of information to gain knowledge of
how best to monitor the results of management and evaluate whether
established goals are being attained. In this respect, it
would be desirable to establish or strengthen capacities of Parties
for monitoring. In addition, adaptive management learning
portfolios should be developed between different sites so that
comparison can be made and lessons learned.
79.
Implementing adaptive management in relation to tourism and
biodiversity will require the active cooperation of all
stakeholders in tourism, and especially those in the private
sector, with biodiversity managers. Impacts on biodiversity
at a particular location may require rapid curtailment of visits by
tourists to prevent further damage, and to allow for recovery, and
in the longer-term, may necessitate an overall reduction in tourist
flows. It may be possible for tourists to be redirected to
less sensitive areas in such cases. In all cases, maintenance
of the balance between tourism and biodiversity will require close
interaction between tourism managers and biodiversity managers, and
appropriate frameworks for management and dialogue are likely to
need to be established.
80.
Governments, including designated biodiversity managers, in
conjunction with all other stakeholders will therefore need to take
actions, as appropriate, to address any problems encountered and to
keep on track towards agreed goals. This may include changes
and additions to conditions set in the original approval, and will
require participation of and consultation with the developer and/or
operator of the tourism facilities and activities concerned, and
with local communities.
81.
Adaptive management can also be undertaken by all those who have
management control over any specific site, including local
Governments, indigenous and local communities, the private sector,
non-Governmental organizations and other organizations.
82.
Where necessary, legal frameworks may need to be reviewed and
amended to support adaptive management, taking into account
experience gained.
C.
Notification process and information requirements
83.
Proposals for tourism development and activities at particular
locations in relation to biodiversity are to be submitted through
the notification process. As such, this process provides the
link between proposers of tourism activities and development, and
the management process steps outlined above. In particular,
the notification process makes specific links to the steps in the
management process for impact assessment and decision-making and
should take into account local, regional and national
impacts. Proposers of tourism projects, including Government
agencies, should provide full and timely advance notice to all
stakeholders who may be affected, including indigenous and local
communities, of proposed developments.
84.
Information to be provided as part of the notification could
include:
(a)
Scale and types of tourism development or
activities proposed, including a summary of the proposed project,
why and by whom it is proposed, estimated outcomes and possible
impacts, and a description of the stages of development and the
various structures and stakeholders that may be involved at each
stage;
(b)
Analysis of market for proposed tourism
development or activities, based on market conditions and
trends;
(c)
Geographical description including recreation
opportunity zones, outlining tourist activities and infrastructure
development, and location of the site of tourism development or
activities, the identity and any special features of the
surrounding environments and biodiversity;
(d)
Nature and extent of human-resource requirements
and plans for their procurement;
(e)
Identification of various stakeholders involved
in or potentially affected by the proposed project - including
stakeholders in Governmental, non-Governmental, and private
sectors, and indigenous and local communities - along with details
concerning their participation in and/or consultation on the
proposed project during its design, planning, construction and
operation;
(f)
The perceived roles of local stakeholders in the
proposed development;
(g)
The various laws and regulations that may be
applicable to the specific site, including overviews of existing
laws at local, subnational and national levels, of existing uses
and customs, of relevant regional and international conventions or
agreements and their status, and cross-boundary agreements or
memoranda or understanding and any proposed legislation;
(h)
The proximity of the site to human settlements
and communities, sites used by people from those settlements and
communities as part of their livelihoods and traditional
activities, and heritage, cultural or sacred sites;
(i)
Any flora, fauna and ecosystems that could be
affected by the tourism development or activities, including
keystone, rare, endangered or endemic species;
(j)
Ecological aspects of the site and its
surroundings, including indication of any protected areas;
specifications on the ecosystems, habitats, and species;
quantitative and qualitative information on the loss of habitats
and species (main reasons, trends), and indexing of
species;
(k)
Training and supervision of personnel carrying
out the tourism development or activities;
(l)
Likelihood of impacts beyond the immediate area
of the tourism development or activities, including transboundary
impacts and effects on migratory species;
(m)
A description of current environmental and
socio-economic conditions;
(n)
Expected changes to environmental and
socio-economic conditions as a result of the tourism development or
activities;
(o)
Proposed management measures to avoid or
minimize adverse impacts from the tourism development or
activities, including verification of their
functioning;
(p)
Proposed measures for mitigation,
decommissioning and compensation in the event of problems arising
with the tourism development or activities;
(q)
Proposed measures to maximize the local benefits
of the tourism development or activities on surrounding human
settlements and communities, biodiversity and ecosystems, which may
include, but are not limited to:
(i)
Using local products and skills;
(ii)
Employment;
(iii)
Restoration of biodiversity and
ecosystems;
(r)
Relevant information from any previous tourism
development or activities in the region, and information on
possible cumulative effects;
(s)
Relevant information from any previous tourism
development or activities by the proposer.
85.
Categories of responses that Governments may wish to consider
making in response to notification of proposals for, and requests
for permission to undertake, tourism development, include,
inter alia:
(a)
Approval without conditions;
(b)
Approval with conditions;
(c)
Request for further information;
(d)
Deferral pending further baseline research by
other agencies;
(e)
Refusal of the proposal.
D.
Education, capacity-building
and awareness-raising
86. Education and
awareness-raising campaigns need to be addressed to both the
professional sectors and the general public and should inform them
about the impacts of tourism on biological diversity, and good
practices in this area. The private sector, and, especially,
tour operators, could provide information more widely to their
clients-the tourists-about tourism and biodiversity
issues, and encourage them to conserve, and avoid adverse impact
on, biodiversity and cultural heritage to respect national
legislation of the visited country, as well as traditions of
indigenous and local communities of that country, and to support
actions in conformity with the present Guidelines.
87. Awareness campaigns
explaining the link between cultural diversity and biological
diversity will need to be tailored for various audiences,
particularly stakeholders including consumers of tourism,
developers and tourism operators.
88. Education and
awareness-raising is required at all levels of Government.
This should include processes for increasing mutual understanding
between relevant ministries, including joint and innovative
approaches for dealing with tourism and environmental issues.
89. Awareness should also
be increased within and outside Government that vulnerable
ecosystems and habitats are often located within lands and waters
occupied or used by indigenous and local communities.
90. The tourism sector as
a whole, along with tourists should be encouraged to minimize any
negative impacts and maximize positive impacts on biodiversity and
local cultures associated with their consumption choices and
behaviour, for example through voluntary initiatives.
91. It is also important
to raise awareness within the academic sector responsible for
training and research on issues regarding the interaction between
biological diversity and sustainable tourism, of the role that they
can play concerning public education, capacity-building and
awareness-raising on these issues.
92. Capacity-building
activities should aim to develop and strengthen the capacities of
Governments and all stakeholders to facilitate the effective
implementation of the present Guidelines, and may be necessary at
local, national, regional and international levels.
93. Capacity-building
activities can be identified through the adaptive management
process and can include strengthening human resources and
institutional capacities, the transfer of know-how, the development
of appropriate facilities, and training in relation to biological
diversity and sustainable tourism issues, and in impact assessment
and impact management techniques.
94. Such activities
should include ensuring that local communities are equipped with
the necessary decision-making abilities, skills and knowledge in
advance of future tourist in-flows, as well as with relevant
capacity and training regarding tourism services and environmental
protection.
95. Capacity-building
activities should include, but not be limited to:
(a)
Capacity-building and training to assist all
stakeholders, including Governments, and indigenous and local
communities, in accessing, analysing and interpreting baseline
information, undertaking impact assessments and evaluations, impact
management, decision‑making, monitoring and adaptive
management;
(b)
Development or strengthening of
mechanisms for impact assessment with the participation of all
stakeholders, including for the approval of the approach, content
and scope of impact assessment;
(c)
Establishment of multi-stakeholder processes
involving Government departments, tourism sector, non-Governmental
organizations, indigenous and local communities and other
stakeholders;
(d)
Training of tourism professionals in
conservation and biodiversity issues.
96.
Information exchange and collaboration regarding sustainable
tourism implementation through networking and partnerships between
all stakeholders affected by, or involved in tourism, including the
private sector, should be encouraged.
[54]/
For the purposes of the present Guidelines "indigenous and
local communities" means "indigenous and local
communities embodying traditional lifestyles relevant for the
conservation and sustainable use of biological
diversity".
[55]/
Monitoring at World Heritage sites should be designed to also
incorporate the World Heritage criteria upon which the site was
inscribed. The monitoring system should be designed to
contribute to the World Heritage periodic reporting structure,
aimed at gathering information on the state of conservation of the
site.
