Organizing Resources for Tourism Development in Rural Areas Presented by Center for Sustainable Tourism East Carolina University www.sustainabletourism.org www.renewabletourism.com i Acknowledgment This version of Organizing Resources for Tourism Development In Rural Areas was originally prepared for distribution at the 1993 National Rural Tourism Conference in Rapid City, South Dakota. Since that time we have presented the concepts put forth in this document in numerous small and large group settings. The feedback on the applicability of the planning concepts and methods has been useful and most positive. It is our intent that the usefulness of the planning techniques and concepts proposed herein continue to be field tested and evaluated. We encourage community leaders and professionals who incorporate these ideas in their tourism development efforts to contact us and let us know what works (and what doesn't!). In addition to the input of community leaders and professionals who work with communities in the area of tourism development, we have also sought the opinion of several planners and community development specialists as to the effectiveness of the processes we're proposing. The authors would like to acknowledge and thank John Whiteman, Integrated Tourism Strategies, Inc., John Sem, Western Entrepreneurial Network, Scott Kieselbach, Community First, Inc., Glenn Weaver, University of Missouri, Gale Trussell, Tennessee Valley Authority, Bill McLaughlin, University of Idaho and Dr. David Edgell, Past Undersecretary, United States Travel and Tourism Administration and now Research Scholar and Full Professor, Center for Sustainable Tourism, East Carolina University, for their contribution of ideas and edits relative to the concepts outlined in this document. Jonelle Nuckolls and Patrick Long Center for Sustainable Tourism East Carolina University ii Preface Sustaining rural America is one of today's pressing issues. With the decline of family operated farms and ranches and the move away from traditional extraction industries, word about the benefits of developing tourism in rural communities and regions is quickly spreading. This increased interest in tourism as a way to diversify the rural economy has also led to widespread interest and need by local community leaders and governments for information on how to organize resources and systematically implement strategies for tourism development. To the benefit of many, a number of excellent resources specifically geared to assisting rural communities with tourism development have recently been prepared for public distribution (Sem et al. 1992; Richardson 1991; Weaver et al. 1991; Heatherington 1988, Long & Nuckolls 1992; 1994). These resources provide important information and general ideas about local involvement, marketing, selecting attractions, and funding tourism initiatives. This document complements these valuable resources by providing a results-oriented process that clearly demonstrates the relationship of planning to key tourism development functions such as organization and community involvement, tourism product development, and tourism product marketing. Employing this hands-on, step-by-step approach to organizing resources for tourism development and marketing in a rural setting will enable local leaders to piece together the various elements for a workable and realistic tourism plan. Local communities that choose to incorporate this process into their tourism development effort will be able to more effectively and efficiently plan and implement a sustainable tourism industry. Specific benefits to applying this process for organizing resources include: (1) the ability to develop and implement a plan for tourism that integrates organizational development, community involvement, and tourism product development, marketing, and management; (2) a clearer understanding of both the positive and negative impacts of tourism on community quality of life; and (3) the ability to make more effective decisions concerning allocation of resources for tourism product development and marketing. Prior to undertaking a rural tourism initiative, it is important to recognize each of the main components that make up the tourism industry. Part I of this paper provides a model and brief description of these components. Successfully developing and managing these components requires leadership, planning and technical assistance. The ingredients for organizing resources for tourism development are reviewed in Part II. Finally, Part III outlines a hands-on, userfriendly process communities can follow that integrates leadership, planning, and technical assistance and produces realistic actions and strategies for tourism development, marketing, and management. iii Part I. Components of the Tourism Industry What does rural tourism mean to you? For many in the industry, tourism translates into brochures with multi-color separations and quarter page ads publicizing the services and recreation opportunities available to the vacationing and business traveler. recreational attractions and amenities, as well as interpretive, educational, and recreational programs and special events that are managed specifically for use by various publics. Traveler services provide the visitor with accommodations, food and beverage, Considered part of traveler services, these promotional elements are critical modes of transportation (bus, taxi, train, aircraft, boat, bicycle), shopping, to the success of tourism; however, they comprise only a part of the total picture. To be successful, a community or region must also be able to capture and maintain the interest of potential visitors, provide access to emergency care, information about the area, and friendly and knowledgeable assistance. reasonable access and basic human services, meet needs for safety and security, and demonstrate relatively intense levels of hospitality. Thus, to develop a tourism industry that will be both successful and sustainable requires careful consideration of 5 main components. These components include: (1) tourism resources, (2) traveler services, (3) infrastructure, (4) tourist markets, and (5) the host community or region (Figure 1). Tourism resources may be defined as natural and man-made, scenic, scientific, cultural, historic, and Nuckolls and Long - 2009 Infrastructure relates to suitable utilities (water, sewer, and electric), communication, and transportation access such as roads, airports, railways, and waterways. Tourist markets are the consumers (and users) of the tourism product. Understanding who the potential visitors are, where they come from, what they are interested in seeing and doing, and how much they are willing to pay for these experiences are important visitor Organizing Resources for Rural Tourism - 1 characteristics that are often addition, the quality of the host-guest overlooked. Knowledge of existing and potential tourist markets will greatly improve an area's chances for success. Finally, and most important, is the host community or region. Developing a tourism industry directly and indirectly affects the entire community. Both tourism and nontourism businesses as well as the local citizenry all have the potential of being relationship plays a major part in determining the overall quality of the visitor's travel experience and his or her perception of the community. In rural areas, for tourism to succeed, efforts must be made to contribute to, rather than disrupt, the local quality of life. Taking all 5 of these components into account is essential when developing tourism in rural areas in positively or negatively impacted as a result of tourism, and thus play a key role in the industry's success. In order to ensure a successful and sustainable tourism industry. Nuckolls and Long - 2009 Organizing Resources for Rural Tourism - 2 Part II. Organizing Resources for Tourism Development Requires: Leadership, Planning, and Technical Assistance Successful development and management of a tourism industry requires three main ingredients: (1) leadership, (2) a planning process, and affected by decisions related to tourism development or expansion. This balanced representation may be reflected in a variety of ways, two of (3) technical assistance. If a community is lacking in any one of these, the chances for long term success and sustainability of the tourism effort will be diminished. As the tourism development effort progresses, communities that are able to systematically and strategically plan for tourism are most likely to realize which include: (1) the composition of the tourism development group and (2) the benefits associated with the integration of these three key ingredients. development effort along. Characterized by their energy, motivation, knowledge of some facet of the tourism industry, and respect among peers, these individuals often evolve as the catalyst for the tourism initiative. Rural communities need someone who can commit the time and expertise necessary to administer and manage the tourism development demonstrated community involvement during critical planning activities. Committed can take on a number of derivations. For those communities enjoying the greatest progress, there is often one individual who tends to be the driving force moving the tourism Leadership Effective leadership requires a well-balanced group consisting of individuals who are committed to the long term development and management of tourism in their community or region. The key words here are balanced and committed. Balanced suggests that a mechanism is in place to ensure representation of both tourism and non-tourism business and resident interests who may be Nuckolls and Long - 2009 effort. But, this person, paid or volunteer, cannot be expected to handle the task alone. Thus, at some point early in the tourism development process, a diverse and representative group of individuals interested in tourism must be brought together to Organizing Resources for Rural Tourism - 3 pool their ideas, interests, concerns, and resources. Figure 2 suggests three main sectors: private, public, and quasi-public1 from which tourism group representatives should be recruited. Who makes up this diverse group involved in community tourism development? Who should be represented? Private Sector - business owners/operators; downtown merchants' associations; chamber/ resort associations and hotel, motel, restaurant associations; lending institutions; and landscape architects/resort planners. Public Sector - city, county, regional, federal government officials; planning boards or staff; economic, community, or regional development organizations; local and state parks and recreation agencies; historical societies, and interested citizens. Quasi Public Sector - convention and visitor bureaus (CVB's); municipal, county, regional, or state tourism boards, councils or promotional organizations; and special event sponsors or producers. Figure 2. Sectors from which to recruit tourism group representatives. 1 "Quasi-public" sector may be defined as organizations that are supported in part or whole by public funds and who support both public and private interests. Nuckolls and Long - 2009 Once these individuals are brought together, some type of organizational structure will be needed. The degree and type of organization will vary depending on the individual situation of each community or region. Those communities with great capacity and substantial resources for tourism development will require a much greater degree of organization than those that are developing a single attraction. Whatever the case, developing some type of governing board, coordinating with groups both in the community and across the region, and establishing committees to carry out the organization's goals, are important group functions. Funding for staff such as an administrative assistant, executive director, or private consultant, whose sole focus is to coordinate the local tourism effort may not be available. Eventually, however, if the tourism industry is to be sustained over time, a paid professional who is able to devote at least 50% time to the tourism development, marketing, and management effort will be needed. Lack of funds, however, should not deter the tourism group from locating an individual who is knowledgeable about group process and the tourism industry, is willing to lead the group, and provide documentation of the progress. This individual may be a public or private technical assistance Organizing Resources for Rural Tourism - 4 provider from outside the community concerns and opportunities about or a respected leader from within the community. Identifying this individual is essential in order to develop and implement a plan for tourism. existing or proposed tourism activity, (3) expressing opinions and voting on Public Involvement Deciding when the time is appropriate to involve the general public in planning for tourism development is a matter of individual circumstance. However, as a general guideline, both tourism and nontourism business and resident interests should be invited to participate How do you involve tourism and nontourism community interests? Initial involvement should be to inform and educate. To accomplish this: 3 3 3 3 3 hold public meetings place ads and articles in the newspaper develop an information brochure or fact sheet make presentations to community organizations meet one-on-one with key stakeholders Involve tourism and nontourism community interests when: As the project progresses, more emphasis is placed on active public involvement. Activities at this stage might include: 1. There is potential to affect the quality of life within the community 3 3 2. These individuals or organizations stand to gain or lose economically or socially, and 3 3 3. Local physical environment and resources (natural or manmade) are threatened or will be changed. whenever the tourism development group is: (1) articulating ideas and hopes for the future physical development, size, and population of their community, (2) identifying Nuckolls and Long - 2009 3 3 focus group sessions with representatives from all parts of the community an invitation to the public to participate in preliminary planning workshops administration of a formal or informal survey to solicit public opinion and attitudes public hearings to debate proposed tourism development goals and policies meetings with key stakeholders to solicit their opinions and ideas for proposed tourism development activities an invitation for the public to become actively involved in various projects related to tourism development Organizing Resources for Rural Tourism - 5 proposed tourism development and or marketing, the process is the same. marketing goals; and (4) evaluating how well the tourism initiative is working. What changes is the content, and this is contingent on the function being pursued. In general, communities interested in developing a tourism industry can expect to be involved with four main functions: Planning Planning often conjures up images of thick documents collecting dust on the shelves of government agencies or theoretical models too complicated to 1. organizational development apply in real life situations. Unfortunately, in many cases these 2. community involvement 3. tourism product development 4 tourism product marketing images are reality! Nonetheless, to be successful, communities must employ some degree of action and resultsoriented planning for tourism development, marketing, and management. The degree of planning required is directly related to the stage of development of the tourism group To be successful over the long-term requires planning relative to each of these areas. In the early stages of tourism development, planning activities are employed to help the tourism development group get organized, recognized, and funded -organizational development, and build interest and support from local residents and affected interests-community involvement. The content of the plan then begins to shift to decisions about the type and degree of tourism desired -- tourism product and existing tourism initiatives, opportunities, and threats. Perhaps the one most important fact to recognize as the tourism development process is initiated is that planning is planning! Whether the focus be organizational development, attraction development, Nuckolls and Long - 2009 development and who should be targeted to consume (experience) what the local tourism industry has to offer - tourism product marketing. Organizing Resources for Rural Tourism - 6 Figure 3 illustrates a simple model particularly those related to for tourism planning. Note that although a starting point is implied, a community will, depending on its stage of development, most likely be simultaneously involved in one or more planning activities. In addition, a number of planning activities, Nuckolls and Long - 2009 determining community values and vision, developing a mission, and identifying major concerns and opportunities, need only be completed once, and will serve as the foundation for future tourism development and marketing decisions. Organizing Resources for Rural Tourism - 7 Technical Assistance clearly defined and promoted so that Each tourism development group requires access to some degree of technical assistance. This assistance, usually in the form of expertise and/or resources (human, physical, and financial), can be found both within the community as well as externally (See Figure 4 - Technical Assistance Matrix). Assistance from within the potential users can evaluate and incorporate it into their plans. The good news is there's a lot of help out there for rural America. The bad news is that the quality and usefulness of this assistance is not always easy to discern. Unfortunately, community leaders can't wait for the various technical assistance providers to: (1) realize the contribution they can make community may come from a local government entity, a private business, or an organization who's sole purpose is to provide community development assistance. External to the community, assistance can be found from a variety of state and federal agencies, universities, private consultants, and nonprofit organizations. The availability, applicability, and usefulness of this assistance must be Nuckolls and Long - 2009 with a little creative thinking, and (2) get coordinated to the point that rural areas can receive maximum benefits. Thus, the burden is placed back on the shoulders of community leaders to first determine what type of assistance they need and second, begin to identify possible sources of assistance within and outside of their respective communities. Organizing Resources for Rural Tourism - 8 Part III. Planning Activities A process proposed by the authors for organizing resources for rural tourism development results in the integration of leadership, planning, and technical assistance by working through ten planning activities (see Figure 3). These activities which can be grouped under the well known step combines the familiar resource inventory, environmental scan, and market analyses, into one step. Thus, communities are encouraged to view the broad picture from the onset as they inventory and assess (1) the physical resources, services, strategic planning questions require groups to: (1) assess their current situation, (2) define where they want to go in the future, (3) determine how they will get there, and (4) evaluate their progress along the way. Table 1 provides an outline of the four strategic planning questions and the associated and infrastructure that are optimal for tourism and recreation development; (2) local interest in, and support for, tourism and the human resources available to manage the effort, and (3) the potential markets to consume the products and experiences provided by the local tourism industry. planning activities relative to the functions of (1) organizational development, (2) community involvement, (3) tourism product development, and (4) tourism product marketing. A brief description of these activities is provided below. This information gathering exercise, when completed, should paint a picture of the community's strengths and weaknesses and overall suitability/capability to develop a tourism industry. a. Where Are We Today? - Answering this question requires work on the information gathering step. It is important to note that information gathering should not be limited to an inventory of the community's physical resources, infrastructure, and traveler services. Rather, this Nuckolls and Long - 2009 b. Where Do We Want To Go? Answering this question requires work on the planning activities that include identifying values, creating a vision, identifying critical concerns and opportunities, developing a mission, and formulating broad goals. These Organizing Resources for Rural Tourism - 9 activities help the tourism agenda is prepared. After creative development group and community determine what's really important in terms of quality of life; articulate their desires for the future; identify pressing issues and unique circumstances; summarize their purpose for existing, who they are serving, and the focus and scope of their efforts; and begin to establish a general direction for tourism energy has been exhausted, the objectives and actions are evaluated based on importance and feasibility, resources, timelines, and measures of success. Technical assistance and funding strategies come into play at this stage as community leaders attempt to identify sources of in-kind and financial assistance to help them achieve their goals. development. Gathering the information needed to complete this step will enable the tourism group and residents to honestly determine what they want their community to look, feel, and be like, now, and in the future. In addition, each community will be better equipped with information on which to base tourism development, marketing, and management decisions. c. How Are We Going To Get There? Answering this question will result in the development of objectives and actions. The activities at this stage help to translate the tourism group's vision and goals into action. After the tourism group has brainstormed general ways to accomplish their goals, an action Nuckolls and Long - 2009 d. How Did We Do? By answering this final planning question, the tourism group becomes involved in evaluation and modification activities. The tourism group now determines how well the various tourism development and marketing strategies worked, if the community's values and vision were maintained, and if the critical concerns were addressed. At this point, the process loops the group back to the beginning as they identify new opportunities and concerns and modify their strategies as required. Evaluation activities also remind the group of the importance of follow-up and objectively reviewing their strategies and accomplishments. Organizing Resources for Rural Tourism - 10 Table 1. Tourism Planning: An Integrated Approach PLANNING ACTIVITY ORGANIZATIONAL DEVELOPMENT COMMUNITY INVOLVEMENT TOURISM PRODUCT DEVELOPMENT TOURISM PRODUCT MARKETING ê Where Are We Today? Gather Information 1. Evaluate existing group composition. Identify potential representatives that could or should be involved. Identify both tourism and non-tourism interests that may be affected by the proposed tourism development. Determine key issues and concerns of the various stake-holders. Conduct an inventory and assessment of the area's tourism resources, services, and infrastructure. Estimate existing levels of use and carrying capacity. Profile the existing markets in terms of geographic origin, demographics, family lifecycle, spending patterns, needs, and interests. Where Do We Want To Go? Identify Community Values 2. Create A Vision 3. Identify Concerns and Opportunities 4. Develop A Mission 5. Tourism organization members express community values by answering questions related to quality of life now and in the future. Community representatives express their values by answering questions related to quality of life now and in the future. Values expressed by the tourism organization and community representatives begin to form the foundation upon which future tourism development and resource allocation decisions will be based. Values expressed by the tourism organization and community representatives begin to form the foundation upon which future tourism marketing decisions will be based. Tourism organization members create an image of how the community should look, feel, and be, now and in the future. Community representatives create an image of how the community should look, feel, and be, now and in the future. The descriptive "story" about future development and quality of life in the community further strengthens the foundation and guides tourism development and resource allocation decisions. The descriptive "story" about future development and quality of life in the community further strengthens the foundation and guides tourism marketing decisions. Tourism organization members brainstorm a list of concerns and opportunities that the group or community may be facing. Similar ideas are combined and narrowed down to reflect those: (1) related to tourism and (2) the tourism organization should handle. Community representatives brainstorm a list of concerns and opportunities the community may be facing. Similar ideas are combined and narrowed down to reflect: (1) those related to tourism and (2) those that can be addressed by the tourism organization or through tourism initiatives. The major concerns and opportunities will provide direction for tourism development initiatives. Ideas expressed should be revisited as more concrete plans for developing or enhancing tourism attractions, services, and infrastructure are being considered. The major concerns and opportunities will provide direction for tourism development initiatives. Ideas expressed should be revisited as more concrete plans for marketing tourism resources and services are being considered. Tourism organization members articulate their purpose for existing and determine who they are serving. It is important to recognize not only the visitor, but also community needs during this activity. The tourism organization's mission serves as a vehicle to inform the community about the group's purpose for existing. The mission, along with the values, vision, concerns, and opportunities helps guide the tourism development effort. The mission, along with the values, vision, concerns, and opportunities helps guide the tourism marketing effort. Nuckolls and Long - 1997 Organizing Resources for Rural Tourism - 11 PLANNING ACTIVITY ORGANIZATIONAL DEVELOPMENT COMMUNITY INVOLVEMENT TOURISM PRODUCT DEVELOPMENT TOURISM PRODUCT MARKETING ê Where Do We Want To Go? Develop Goals 6. Based on the tourism organization's values, vision, concerns, opportunities, and mission, goals relative to the structure and administration of the organization are developed. Goals related to community education and involvement in the tourism development effort are developed. Most likely, goals will center on ways to involve the public in the planning process. Based on the expressed values, vision, concerns, opportunities, and mission, goals for the physical development and/or enhancement tourism resources, traveler services, and infrastructure are developed. Based on the plans for tourism product development and/or enhancement, goals for tourism marketing are developed. How Are We Going To Get There? Develop Objectives 7. Develop Actions 8. Tourism organization members develop actionoriented statements that propose how to achieve each organizational goal. The number of objectives for each goal will vary depending on the group's stage of development and available human, physical, and financial resources. Tourism organization members develop actionoriented statements that propose how to achieve each community education and involvement goal. The number of objectives for each goal will vary depending on the community's level of interest and involvement in the tourism initiatives, and the available human, physical, and financial resources. Tourism organization members develop actionoriented statements that propose how to achieve each tourism product development goal. The number of objectives for each goal will vary depending on the community's stage of development, the quantity and quality of existing tourism resources, services, and infrastructure, and available human, physical, and financial resources. Tourism organization members develop actionoriented statements that propose how to achieve each tourism product marketing goal. The number of objectives for each goal will vary depending on the quantity and quality of existing tourism marketing activities and available human, physical, and financial resources. Tourism organization members define strategies and tactics which outline specifically how each organizational development objective will be achieved. This includes exploring funding and technical assistance alternatives, identifying timelines, and assigning tasks. Tourism organization members define strategies and tactics which outline specifically how each community education and involvement objective will be achieved. This includes exploring funding and technical assistance alternatives, identifying timelines, and assigning tasks. Tourism organization members define strategies and tactics which outline specifically how each tourism product development objective will be achieved. This includes exploring funding and technical assistance alternatives, identifying timelines, and assigning tasks. Tourism organization members define strategies and tactics which outline specifically how each tourism marketing objective will be achieved. This includes exploring funding and technical assistance alternatives, identifying timelines, and assigning tasks. Organization members conduct a periodic review of tourism product development and implementation activities and progress. A report is written and copies submitted to appropriate governing bodies, funding agencies, and the general public. Organization members conduct a periodic review of tourism product marketing activities and progress. A report is written and copies submitted to appropriate governing bodies, funding agencies, and the general public. How Did We Do? Evaluate Progress 9. Organization members conduct a periodic review of the organization's activities and progress. A report is written and copies submitted to appropriate governing bodies, funding agencies, and the general public. Nuckolls and Long - 2009 Organization members conduct a periodic review of key public involvement activities. A report is written and copies submitted to appropriate governing bodies, funding agencies, and the general public. Organizing Resources for Rural Tourism - 12 Update and Modify Plan 10. Based on new information or changing circumstances, revisions to the organizational development plan are made. Nuckolls and Long - 2009 Based on new information or changing circumstances, revisions to the plan for community involvement are made. Based on new information or changing circumstances, revisions to the plan for tourism product development are made. Based on new information or changing circumstances, revisions to the plan for tourism marketing are made. Organizing Resources for Rural Tourism - 12 Summary Successful and sustainable tourism development that ensures economic prosperity while still maintaining community values and quality of life requires leadership, planning, and technical assistance. Regardless of the level of tourism development your community is pursuing, a thorough understanding of the interrelationship of the five main components of the tourism industry: (1) tourism resources, (2) traveler services, (3) infrastructure, (4) tourist markets, and (5) the host community or region, is absolutely essential if long-term stability is to be achieved. Tourism development must go beyond the brochure! To achieve this requires conscious involvement in an action-driven, results-oriented planning process that includes the integration of four main functions: (1) organizational development, (2) community involvement, (3) tourism Nuckolls and Long - 2009 product development, and (4) tourism product marketing. Planning activities such as determining values, creating a vision, and identifying concerns and opportunities provide the foundation upon which major tourism development and marketing decisions are made. In the most ideal situation, a tourism organization would work through the planning process described herein and come up with a plan that is acceptable to the majority of interests. In reality, this is not likely to occur. Nonetheless, communities that incorporate sound planning principles and a systematic approach to tourism development can expect a tourism industry that contributes to the local economy, enhances local community attractions, services, and amenities; and impacts, in a positive way, local community quality of life. Organizing Resources for Rural Tourism - 14 References Heatherington, Arlene. (1988) Rural Tourism: Marketing Small Communities. Copies available from Meta-Link, Box 11349, Bainbridge, WA 98110 (206)842-9575. Long, Patrick. & Nuckolls, Jonelle. (1992). Rural Tourism Development: Balancing Benefits and Costs, Western Wildlands, Vol 18(3), pp. 9-13. Long, Patrick. & Nuckolls, Jonelle. (1994) Organising Resources for Rural Tourism Development: The Importance of Leadership, Planning and Technical Assistance, Journal of Tourism Recreation Research, Vol. XlX(2), pp 19-34. Richardson, Sarah. (1991) Colorado Community Tourism Action Guide. University of Colorado at Denver and Boulder. Contact the Center for Community Development. (303) 556-2816. Sem, John, Koth, B., and Kreag, G. (1991). Rural Tourism Development. Minnesota Extension Service, University of Minnesota. (612)625-8173. Weaver, Glenn, Project Director. (1991). Tourism USA. Contact United States Travel and Tourism Administration, Department of Commerce, Room 1510, 14th and Constitution Ave. NW, Washington, D.C. 10030. Nuckolls and Long - 2009 Organizing Resources for Rural Tourism - 15