TOURISM LAB
PROGRAMME REPORT
Table of Contents
Executive Summary............................................................................................... 4
Chapter 1: Introduction ......................................................................................... 5
1.1 Background ............................................................................................................ 5
1.2 The Rationale of the Multisectoral Tourism Development Program .......................... 5
1.3 Adopted Approach and Methodology...................................................................... 6
1.4 Fundamentals to the Development of the MTDP ..................................................... 7
1.5 Goals and Objectives .............................................................................................. 7
1.6 Identified Projects .................................................................................................. 8
1.7 Platform of coordination and Implementation......................................................... 8
Chapter 2: Situation analysis ................................................................................. 9
2.1 Marketing and Promotion ....................................................................................... 9
2.1.1 Background ............................................................................................................... 9
2.1.2 The Present Situation ............................................................................................... 9
2.2 Tourism Products, Infrastructure and Services ....................................................... 14
2.2.1 Introduction ............................................................................................................ 14
2.2.2 The Present Situation ............................................................................................. 14
2.3 Conservation and Environmental Sustainability ..................................................... 22
2.3.1 Background ............................................................................................................. 22
2.3.2 The Present Situation ............................................................................................. 22
2.4 Tourism Governance ............................................................................................. 24
2.4.1 Background ............................................................................................................. 24
2.4.2 The Present Situation .......................................................................................... 24
Chapter 3: Links to overarching policy framework ................................................26
3.1 Introduction ......................................................................................................... 26
3.2 Global policy framework – the UN Millennium Development Goals........................ 26
3.3 Long-term national framework: Vision 2020 .......................................................... 26
3.4 Medium-term national framework: MKUZA II........................................................ 27
3.4.1 Zanzibar Poverty Reduction Plan (ZPRP) (2002-2005) ........................................... 28
3.4.2 Zanzibar Strategy for Growth and Reduction of Poverty - ZSGRP/MKUZA I (20072011)................................................................................................................................ 28
3.4.3 MKUZA II (2011-2015) ............................................................................................ 28
3.5 National Tourism Policy ........................................................................................ 28
Chapter 4: Programme description .......................................................................30
4.1 Overall Vision, Goals and Specific Objectives ......................................................... 30
4.1.1. Vision ..................................................................................................................... 30
4.1.2 Goals ....................................................................................................................... 30
4.1.3 Growth Scenario and Strategic Assumptions ......................................................... 30
4.2 Program coverage, target population and time frame ............................................ 32
4.3 Implementation principles and guidelines ............................................................. 32
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4.4 Program components with their strategic result framework .................................. 32
4.4.1 Marketing and Promotion ...................................................................................... 32
4.4.2 Tourism products, infrastructure and services ...................................................... 36
4.4.3. Conservation and environmental sustainability .................................................... 45
4.4.4 Tourism Governance .............................................................................................. 47
4.5 Resource Mobilisation .......................................................................................... 49
Chapter 5: Enabling environment .........................................................................51
5.1 Introduction ......................................................................................................... 51
5.2 Coordination related issues ................................................................................... 51
5.3 Overall Program Coordination ............................................................................... 51
Chapter 6: Monitoring and Evaluation ..................................................................53
6.1 KPIs for Strategic Objectives.................................................................................. 53
6.2 Coordination of Monitoring and Evaluation ........................................................... 57
6.3 Use of information from Monitoring and Evaluation .............................................. 57
Chapter 7: Communication Strategies ..................................................................59
7.1 Introduction ......................................................................................................... 59
7.2 The Assignment .................................................................................................... 59
7.3 Tasks To Be Performed ......................................................................................... 60
7.3.1 Media And Content To Be Used In The Communication Strategies ....................... 60
7.3.2 Communication Approaches .................................................................................. 60
Chapter 8: Risk and sustainability measures .........................................................61
8.1 Environment......................................................................................................... 62
8.2 Climate Change..................................................................................................... 62
8.3 Financial risk ..................................................................................................... 62
8.4 Life span period .................................................................................................... 63
8.5 Human capacity risk.............................................................................................. 63
8.6 Security Risk ......................................................................................................... 63
8.7 Ownership Risk ..................................................................................................... 64
8.8 Sustainability ........................................................................................................ 64
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Executive Summary
Zanzibar is home to a diverse range of natural attractions and cultural heritage, attracting
tourists from around the world over the last twenty-five years. However, this first
generation of tourism has not grown as strongly as it could have done and has not been
properly linked with the rest of the economy. Furthermore, many Zanzibaris have not
benefitted from tourism and the industry has had some negative environmental and social
consequences. Therefore the Revolutionary Government of Zanzibar aims to move to a
second generation of tourism that cares for and respects residents, protects the natural
environment, celebrates cultural diversity and social values and shares unique and rich
experiences with visitors while providing a leading role in economic growth and
employment.
In February and March 2014, sixty leading representatives from across government, NGOs
and the private sector came together for the Tourism Lab as part of the Results for
Prosperity Initiative. The Lab went through several phases in analysing the current situation
of tourism in Zanzibar, coming up with solutions before refining these into the detailed
Multisectoral Tourism Development Programme (MTDP) described in this report. The Lab
approach was distinctive due to its focus on participation, intense debate and inclusion of
budgets, individual actions and key performance indicators.
While tourism is already an important part of the economy, the sector faces numerous
challenges. The MTDP offers implementable solutions. The products offered should be of a
higher quality and move further beyond sun, sand and sea. Marketing could be better
coordinated to reflect the full richness of Zanzibar and take full advantage of the
opportunities offered by the internet. Infrastructure needs to upgraded and expanded to
satisfy growing demand while transport hubs such as airports and seaports should be
modernised to improve access. Security should be given a high priority as a foundation of
success in tourism. Likewise, we should not forget the importance of the natural
environment in attracting tourists to Zanzibar and should do our utmost to conserve this
priceless asset. Tourism in Zanzibar should benefit local communities through employment
in the sector as well as linkages with farmers and other producers. To enable all of this,
tourism governance should be updated to reflect these new priorities and ensure the
government can properly support a growing sector.
This document is a broad framework that provides strategic direction and guidance to grow
and develop tourism in Zanzibar, to maximise the tourism sector’s contribution to the
growth and development of Zanzibar economy. It provides a structural framework for the
development, management and monitoring of tourism in the country with the aim of preempting problems, mitigating impacts, fostering equitable relationships between
stakeholders and inter sectoral cooperation.
Implementation of the MTDP should enable Zanzibar to increase annual tourist arrivals from
around 270,000 in 2013 to over 500,000 in 2020, while simultaneous increases in spending
per tourist and length of stay would more than quadruple total tourist expenditure to
US$2.6 billion. This would be truly transformative for Zanzibar.
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Chapter 1: Introduction
1.1 Background
The Revolutionary Government of Zanzibar aims to increase economic growth. Key policies
which set out what needs to be done include the Zanzibar Vision 2020, the Zanzibar Growth
Strategy and the National Strategy for Growth and Reduction of Poverty (MKUZA I & II). To
further promote economic growth, the government of Zanzibar has started to translate
these plans into detailed programmes that can be implemented by the communities,
government and other stakeholders. Between 2007 and 2012, Zanzibar made impressive
strides towards reaching its stated objectives as economic growth reached an average of
6.4% p.a. (OCGS, Economic Survey 2012) while the percentage of population living below the
poverty line decreased from 49.1% in 2005/06 to 44.4% in 2010.
Agriculture is still a core economic activity although its contribution has declined due to the
cyclical nature of cloves production and over-supply in the world market. When cloves prices
were low in the world market, Zanzibar experienced low economic growth rate and
therefore agricultural-based growth has been unsustainable. Recently, Zanzibar has opted to
diversify the economy into other - more promising – sectors including trade and tourism.
Given Zanzibar’s natural advantages, tourism can be a key economic growth promoting
activity. In 2010, the Revolutionary Government of Zanzibar set a target of 250,000 tourist
arrivals per year by 2015. Some progress has already been made towards this goal. In 2013,
Zanzibar hosted 181,301 (ZCT 2014) tourists indicating an estimated rate of increase of
3.45% per annum and accounting for over 60,000 jobs. Statistics indicate that in 2012 hotels
and restaurants accounted for 6.5% of Zanzibar’s GDP (OCGS, Economic Survey 2012) and
tourism tax revenue reached Tsh.27 billion (Zanzibar Revenue Board, 2013). However,
progress has been also associated with negative environmental and social effects that
threaten the sustainability of the sector.
The tourism sector has a wider spillover effect into other sectors including environmental
and cultural resources, economic infrastructure, amenities and facilities, and service
management. Therefore Zanzibar has recognised the need for a Multisectoral Tourism
Development Program (MTDP) as a strategic tool that will provide overall direction for future
tourism development. The MTDP reflects National Tourism Policy that tourism should be
culturally and environmentally sensitive and based on fewer high-spending tourists. Services
provided should be of the highest quality and mass tourism should be discouraged. This view
has been widely supported in discussions with various players in the public and private
sectors. In particular, the MKUZA II implementation plan (2010-2015) places an emphasis on
the development of exciting and iconic tourism initiatives, proper management of tourism
industry and a focus on tourism promotional activities.
1.2 The Rationale of the Multisectoral Tourism Development Program
Governments worldwide know the role of tourism in economic growth and to the progress
of modern societies. For this reason many attempts are being made in order to foster
tourism to bring benefits as quickly and as effectively as possible. A matter of concern for
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the Zanzibar tourism industry is the lack of a clear integrated tourism vision that outlines
tourism development targets at the national level, meaning tourism is not well-connected to
other sectors. Although a national tourism policy exists, as well as a tourism master plan,
which is the nation’s strategic plan for tourism development, no specific and comprehensive
multi-sectoral programme exists for tourism development.
With clear goals and a road map, instruments could be identified to enable their
implementation. Other sectors could be engaged to support the development of tourism.
For example, the development of infrastructure could be carried out in tandem with the
Tourism Master Plan. Priority for infrastructure development (e.g. roads) could be directed
and placed in areas with a potential for tourism growth. Thus, the overall object of the
Tourism Lab is to formulate the Multisectoral Tourism Development Program (MTDP) to
further enhance tourism development in the country and enhance the role of the sector as
one of the key sectors in the economic transformation strategy.
1.3 Adopted Approach and Methodology
Given the significance of tourism to the Zanzibar’s economy, it is imperative that tourism is
maintained as an economic driver for the local economy as well as managed in a sustainable
way to enhance and conserve the natural environment and protect the well-being of
Zanzibar’s residents. With this objective at heart, the ‘Lab’ methodology used for compiling a
Multisectoral Tourism Development Program was comprehensive and integrates a number
of elements that in turn led to the formulation of sub-programs and a number of projects.
A ‘Lab’ is an intense problem-solving environment within a dedicated physical workspace
with a full time team working in iterative manner towards delivering results. It is typically a
consultative approach whereby different stakeholders go deeper to identify issues,
proposed solutions, priorities and synergies among sectors. The Laboratory approach is not
only a cost effective planning method, but also it has proven successful elsewhere, such as
Malaysia and Tanzania Mainland, where they managed to overcome the structural barriers
which prevent all sections of government working jointly together to address a problem.
Given its potential, the RGoZ has decided to adopt this planning methodology.
Before the Lab itself, the Zanzibar Planning Commission (ZPC) consulted with key
stakeholders including the Zanzibar Association of Tourism Investors (ZATI), Zanzibar
Investment Promotion Authority (ZIPA), Zanzibar National Chamber of Commerce, Industry
and Agriculture (ZNCCIA) and Zanzibar Commission for Tourism (ZCT) to create an agenda of
specific constraints to the growth of the sector. The government then worked with the same
organisations to identify the most important and relevant participants from the private
sector to join the Lab, including tour operators, hotel and restaurant owners, handicraft
shop owners, food suppliers and more. The list also includes representatives from across
government ministries and departments who can cover the following areas: environmental
and cultural resources; economic infrastructure; amenities and facilities; enabling
environment; and service management. A number of brainstorming workshops and
syndications with industry stakeholders were conducted. Representatives from central
government, MDAs, communities and the private sector attended these workshops and
syndications.
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1.4 Fundamentals to the Development of the MTDP
The program is informed by a situational analysis of demand and supply factors to
determine those aspects of the tourism industry in Zanzibar that require further
development. The emphasis is on broadening involvement of local people and how the
current mix can be enhanced to deliver both a richer experience for visitors and greater
benefits for residents.
In the development of the MTDP, four fundamental principles without which the tourism
industry will not develop to its full potential were taken into consideration. Though it might
not be specifically highlighted in each section, these fundamental principles are woven
throughout the program. The following aspects were taken into account:
i
Product development: Tourism products and experiences will be developed based on
an analysis of the identified demand, gaps in supply and Zanzibar’s unique qualities.
This includes cultural and historical attractions, activities such as soft adventure,
accommodation, meeting spaces and other facilities. The program also considers and
identifies opportunities that exist specifically for local communities, emerging
entrepreneurs and SMMEs.
ii
Tourism investment framework: The program requires government intervention in
tourism in the form of delivery on hard infrastructure rather than product provision. It
provides recommendations on community-public private partnership (CPPP) and public
sector support and facilitation of projects delivering empowerment to communities.
iii
Tourism marketing framework: The program identifies core tourism products and
experiences and matches these to target market segments through a well-designed
positioning and branding strategy and a promotion and communication strategy. In
particular, this will take advantage of online opportunities for promotion given the
internet’s paramount influence on the choices of holidaymakers.
iv
Responsible tourism: Tourism will be developed along the triple bottom line principles
of profit, people and planet taking account of economic, social and environmental
concerns.
1.5 Goals and Objectives
The goals and objectives of this Program provide the framework for determining the most
appropriate projects to best improve the visitor experience in Zanzibar. Equally, they serve
as guideposts to provide long-term direction to the MDAs that will ultimately be charged
with managing the wide range of activities associated with the development of tourism in
Zanzibar. Although the duration of this program is three years, the goals and objectives will
remain valid and provide guidance beyond that initial period and influence subsequent
planning and activities.
The goals and objectives of this program are proposed within a framework of four major
thematic areas. Each of these areas represents core components or key elements of a
successful MTDP. No single thematic area can be considered of greater importance than
another and each has an important, and often mutually supportive, role to play in the
development of a balanced and comprehensive program.
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The four major elements are:
i
Marketing and Promotion: Development of marketing strategies, public awareness
campaigns and branding programs that promote Zanzibar to a wide audience and
increase the number of visits.
ii
Products, Infrastructure, Facilities and Services: Development of efficient
transportation and safety and security systems, recreation and thematic tours,
interpretation facilities, information centres, amenities (water, electricity, etc.),
connectivity and visitor support within the country.
iii
Conservation and sustainability: Development or enhancement of preservation
mechanisms, programs and initiatives for local jurisdictions, preservation organisations
and individuals to improve conditions for long-term resource stewardship and
protection.
iv
Tourism Governance: Policies and legal instruments related to tourism to be
systematised and organised, to resolve conflicts and overlapping jurisdictions, making
the law clear and enforceable and reducing excess bureaucracy in procedures within
the tourism industry. Creation and deployment of standards and regulatory
instruments covering minimum quality requirements for products and services to be
fulfilled by service providers, companies, facilities and professionals in tourism.
1.6 Identified Projects
Many of the proposed projects identified in Chapter 4 bring together government agencies,
businesses, and private organisations in partnership to preserve and promote tourism
resources for the benefit of residents and visitors. These projects will play a key role in
shaping the future success of the Zanzibar as a unique place to visit, work and do business.
The re-development of tourism products, improvement of connectivity, rehabilitation and
improvement of the water supply system and creation of a tourism marketing bureau are
just a few of the nearly twenty projects that have been identified and will be considered for
implementation as part of the MTDP.
1.7 Platform of coordination and Implementation
Accomplishing the many objectives identified in this program requires a cooperative effort
among many partners and the commitment of significant financial resources from a variety
of sources. The MTDP proposes the creation of a “delivery unit” under the President’s Office
which will effectively serve as a “governing organ” that can better support program
implementation. Public workshops and community presentations will be used as tools to
inform the residents during the implementation of the program.
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Chapter 2: Situation analysis
This chapter reviews the historical and present day position of tourism in Zanzibar from the
angles of each of the four thematic areas: marketing and promotion; tourism products,
infrastructure, facilities and services; conservation and environmental sustainability; and
tourism governance.
2.1 Marketing and Promotion
2.1.1 Background
Zanzibar has naturally benefitted from the national publicity from the United Republic of
Tanzania. This has strategically positioned Zanzibar as a destination that offers a
combination of safari and beach holiday options. Following approximately two decades of
promoting Zanzibar as the ‘ultimate tropical get-away destination’ on the Indian Ocean,
concerns have been raised from tourism stakeholders on whether the destination has
managed to achieve proper destination branding and marketing. Zanzibar’s tourism product
is still relatively unknown and major marketing efforts will be necessary to increase
awareness.
2.1.2 The Present Situation
Currently Zanzibar does not stand out amongst the world’s tourism destinations despite its
rich historical cultural and natural tourism resources. Only a small proportion of the global
population have an image of what the country has to offer. The Tourism Promotion Act of
2009 and its amendment give the Commission for Tourism a mandate to promote Zanzibar
as a destination, though there has been a great lack of technical know-how in the practice of
marketing and promotion of tourism products and services both domestically and
internationally. Whilst mature destinations such as Maldives and Seychelles use carefully
constructed promotional plans for each geographical target market, Zanzibar has been
operating without a formal marketing strategic plan and marketing activities have been
carried out in ad-hoc manner without clear measurable aims, objectives and targets. This
limits interest and awareness of Zanzibar and decreases the likelihood of visits. Zanzibar
needs to position itself carefully in the global market as a tourism destination. This requires
careful consideration of the potential tourism resources it has and products and services
have to be promoted to carefully selected target markets.
(i) International markets
It is clear that international marketing has had more emphasis compared to domestic and
regional marketing in the hope of attracting more foreign exchange earnings. Tourism
marketing and promotion overseas has been conducted in conjunction with Tanzania Tourist
Board mainly using trade fairs. Traditionally tourism flows to Zanzibar have come from
Europe. In 1993, visitor arrivals recorded totalled 68,597, and by 2013 arrivals reached
181,301. Whilst this is positive, these visitor arrivals remains relatively low compared to
other destinations with similar strengths in terms of products at a global and regional level.
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Italy is the major international source market, contributing approximately 28 percent of total
arrivals in 2013 as shown in the Figure 2.1.
Figure 2.1: Top Five Source Markets, 2013
Country of
Residence
Italy
Germany
United Kingdom
South Africa
United States
Arrivals
13,920
7,192
6,272
N/A
5,067
1993
% Total
20.29
10.48
9.14
N/A
7.38
Rank
1
2
3
4
Arrivals
50,966
14,891
13,763
10,120
10,014
2013
% Total
28.11
8.21
7.59
5.58
5.52
Rank
1
2
3
4
5
Source: Zanzibar Commission for Tourism, 2013
New source markets to Zanzibar will have to be evaluated and directed in view of retail
tourism enhancement. Competing in saturated markets such as Germany, UK and the US,
where Zanzibar competes with other destinations across the world with similar product
potential like Maldives, and Mauritius will be difficult and expensive. In this regard, a closer
look at emerging source markets such as the Middle East, South America and the Far East
will be necessary. Tourists from the Middle East are increasingly confronted with
complications with entry documents to enter developed tourism destinations in the
Americas and Europe and are looking for alternatives. The relative proximity of Zanzibar and
the strong Muslim tradition in the country provide entry points.
Domestic Market: Domestic tourism plays a strong role in increasing tourism investments
and tourist expenditures, development of natural areas as parks since they form a suitable
recreation place for families, decreasing seasonality and enhancing social bonds through
visiting friends and relatives. Domestic tourism brings about an intermingling of people from
diverse social and cultural backgrounds as well as redistribution of spending power.
Despite the predominant role of domestic tourism in the total tourism activity, few studies
have discussed the significance and growth trends of such markets or the factors that affect
its attributes. The significance of domestic tourism in Zanzibar is still invisible due to the lack
of commonly accepted and used definitions of domestic travel, another reason is that the
available domestic tourism data is mostly unreliable whereby local operators do not keep
record of the people visiting their centres. Although limited in size, the domestic market is
growing. With increasing disposable incomes, modernised lifestyles and better quality of life,
the leisure and recreation sector in tourism has emerged as the biggest attraction for the
domestic tourist in recent years. According to the data compiled by Zanzibar Commission for
Tourism from thee most visited tourism attractions, the number of domestic tourists has
grown from 9,060 in 2010/11 to 9,850 in 2012/13.
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Figure 2.2 Domestic Visitors.
Attraction
Pemba Flying Fox – Kidike
2010/11
2011/12
2012/13
148
293
134
Jozani
4,510
4,403
4,586
Cultural sites
4,402
4,943
5,130
Total
9,060
9,639
9,850
Source: Jozani Park, Kidike and Department of Archive and Antiquity, 2013.
(ii) E-Communication
Zanzibar has yet to fully utilise e-communication in the tourism sector. An upgrade on the
existing national online platform including the website would vastly increase the
destination’s marketing opportunities. E-marketing is considered more cost effective and
environmentally friendly compared to the traditional marketing method of printing
brochures. E-marketing solutions help destinations to connect with visitors and show off
their visual appeal. They can tap into tourists’ interests, answer their enquiries and connect
them with the destination more or less immediately. The current multi-language website
needs revising as it not dynamic and lacks vital social media components. Furthermore, the
information on the website is outdated with low-resolution images and lacks sufficient
coverage of both islands of Unguja and Pemba.
Increasingly, tourist destinations are using interactive web sites and web services to raise
awareness, attract visitors and generate revenue from travel. The internet is more efficient
and less costly than the traditional tools of travel marketing. Zanzibar marketing methods
face challenges as technology has displaced mass marketing with direct messaging to more
specific audiences. Today’s marketing best practices include strategic website design, search
engine marketing, e-commerce and other interactive tools catering to a global audience.
(iii) Destination Branding
The branding of a destination is a crucial element for any marketing and promotional
activities both internally and externally, as it must depict the actual image of the country.
Zanzibar cannot afford to be complacent. In a tourism world that is highly competitive,
Zanzibar must learn to fight harder for visitors, investment and business opportunities. One
of the major challenges facing tourism in the country is the fact that despite a number of
tourism attractions, the country is not well known as the tourist destination. There is a need
for a massive branding the country as the tourism destination. As a destination, Zanzibar
must stand out and play to its strengths without losing sight of what makes it authentic and
unique by understanding who and what makes up Zanzibar in order to gain a competitive
identity as seen below in figure 2.3.
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Figure 2.3: The Competitive Identity
Source: The Competitive Identity, Simon Anholt 2002
Zanzibar has been using different slogans and mottos (including ‘Ultimate Indian Ocean
Experience’ and ‘The Spice Island’) to market its tourism products and services. This has
resulted in mixed messages to markets with resulting confusion and lack of clarity as to
Zanzibar’s positioning and image particularly from the point of view of wholesalers and
travel agents selling Zanzibar. The issue of destination branding is to be studied and
resolved. Given the fiercely competitive character of the market, it is imperative that the
brand conveys the unique competitive advantage that truly sets Zanzibar apart from other
Indian Ocean islands.
(iv) Market Segmentation, Penetration, Diversification:
Although Zanzibar has been quite successful in penetrating the European market, awareness
of Zanzibar as a single tourist destination is still low both in the domestic and international
markets. Generally, marketing is fragmented. The major market segment remains sun, sand
and sea in all markets. Though growing rapidly, other segments of the market such as
nature, culture and other heritage-based tourism remain niche sectors of the market. Sports
and adventure and other speciality markets remain comparatively small. Zanzibar does not
have outstanding assets that would draw large numbers of visitors with these special travel
motives, though undoubtedly, it could attract visitors in their tens of thousands, particularly
if nature tourism is combined with sun and sand.
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Figure 2.4: Purpose of visits to Zanzibar
Leisure
Business
Visi ng Friends
& Rela ves
Other
Source: Zanzibar Commission for Tourism, 2010 International Visitor Exit Survey Report
In terms of MICE tourism (Meetings, Incentives, Conferences and Events), Zanzibar has not
yet reached the standard of offering these services, though some hotels have meetings and
conference facilities on a small to medium scale. Domestic and regional tourism has yet to
be fully promoted and positioned as potential targets for tourism growth; previously fewer
efforts have targeted these particular markets. Furthermore, with the existing concentration
on traditional source markets and less attention on non-traditional markets with different
trends such as the Gulf region, Asia and domestic markets, Zanzibar would continue to
experience undiversified source markets and unsteady growth rate in tourism.
In addition, current source markets reflect European travel patterns of over twenty years
ago. Due to the nature of these source markets, Zanzibar’s tourism calendar has become
very seasonal with two main business seasons (June-August and December-January) creating
gaps in between the main holiday seasons, whereby most business operations practically
cease.
(v) Partnership - Joint Marketing
The tourism industry is private sector driven, but the existing legal framework has provided
the Zanzibar Commission for Tourism with the mandate to promote Zanzibar as tourism
destination with no mention of a role for the private sector. Zanzibar has been promoted
overseas by individual initiatives with no clear guidance. This led to an imbalanced and
uneven international image of Zanzibar. However, since 2008 joint marketing efforts
between the private and public sectors have started to emerge, though without a legal
framework. The Government of Zanzibar provides a substantial amount of money to
Zanzibar Association of Tour Operators to participate at the International Tourismus Boerse
(ITB) travel trade show in Germany. This is a great initiative with room for growth. It is now
essential to ensure that there is a legal framework guiding and allowing the public and
private sectors to coordinate marketing activities.
(vi) Financing of marketing activities
Although the tourism industry is private sector driven, majority of private sector
organisations lack enough resources to operate marketing activities effectively. Currently,
the majority of international marketing and promotion events are enjoyed by few and
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usually in partnership with other companies. Public and private organisations and agencies,
which contribute to the tourism industry, have had inadequate funding to conduct
marketing activities, both domestically and internationally. Despite having the mandate for
marketing and promotion, ZCT has not had sufficient funds to formally operate a marketing
department. Additionally, there is also heavy reliance on print promotion and tourism trade
fairs, whereas online advertising, which tends to be more cost effective, has not been given
a priority. Given the financial constraints, prioritisation of marketing activities needs to be
revised in order to meet modern marketing demands as well as creating a solid foundation
in branding tourism products and services.
2.2 Tourism Products, Infrastructure and Services
2.2.1 Introduction
Tourism is a ‘people industry’ involving the development and supply of a range of facilities,
services and experiences to meet the needs, interests, aspirations and expectations of
visitors. The visitor experience starts from the moment of discovery and continues even
after the moment of departure. Zanzibar as a tourist destination must be capable of meeting
all the desires and needs tourists might have during their visit. The destination products and
services therefore must comprise not only of the distinct cultural and natural assets of the
country, but also the support facilities and services such as accommodation, dining,
entertainment and transport.
2.2.2 The Present Situation
Recent years have seen some uplift in infrastructure development and in availability of
tourism products particularly in accommodation, attractions, activities plus other tourism
support services. There are reasonably well-advanced development proposals and a number
of promising indications of significant government and investor interest in developing a
variety of products, services and activity based facilities and operations. Zanzibar currently
lacks the necessary infrastructure to cater for more and higher value tourists. To ensure
sustainable tourism growth and quality improvement, industry-related infrastructure needs
to be developed.
(i) Tourist security and safety
Safety and security is a vital element for destination development and promotion. Zanzibar
has experienced a significant rise in crime and violence in tourist-concentrated areas across
both Unguja and Pemba. This is negatively affecting citizens and tourists alike. The
government concept paper on tourism safety and security measures1 indicates 218 incidents
of crime across Zanzibar islands for a period of 12 months in 2011/12 (see figure 2.5).
Zanzibar Association of Tourism Investors (ZATI) registered 29 incidents of crime related to
tourism in 2013.
1
August 2013
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Figure 2.5: Number of reported criminal incidences for twelve months over 2011/12
Source: Concept paper on tourism safety and security measures (August 2013)
Furthermore, there has been an increase in loiterers in Stone Town and on Zanzibar beaches
that are harassing tourists. Many of these papasi (beach boys) have permits from local
governments making it difficult for security authorities to track or ambush them as illegal
operators. Papasi are also displaying an increasingly aggressive approach to tourists.
Police response and investigation to tourism related crime incidents is extremely very slow
due to a lack of resources and facilities. Communication and reporting systems between the
police and the tourism service providers are also not sufficient for rapid response in
emergency situations. Lack of security facilities and services such as patrol vehicles,
surveillance helicopters, CCTV cameras, radio calls communication, security information
centres contribute to in effectiveness of police in dealing with tourism crimes. Patrolling in
tourist areas is inadequate and there are no set routes. There are insufficient numbers of
police in most of the police posts located in the tourist areas. Community policing is not
strong in most of the villages where tourist services are provided and, where it is available, it
lacks proper strategy to work in partnership with the business community.
Absence of tourism tribunal causes the prosecution against tourism crimes to follow the
normal procedure and often takes a lot of time. Current insufficient knowledge to establish
facts and corruption also causes the delay in prosecution. When police do successfully
apprehend a criminal with evidence, the prosecution is often unable to follow-through with
strong sentencing. This is sending a message to criminals that violent crime does not carry
consequences.
(ii) Tourism Products and Services and infrastructure
Heritage
Zanzibar is blessed with world-class heritage sites with potential to explore a variety of
cultural and natural attractions. Unfortunately, very few of these have been exploited as
tourism attraction. Zanzibar’s heritage assets provide an opportunity for a full range of
heritage products that attract both domestic and international visitors. The areas available
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for exploration and conservation includes history, monuments, people, coastal and
maritime, flora and fauna. The improper conservation, development and management of a
diversified array of heritage sites are mainly caused by insufficient utilisation of inherited
traditional skills and specialities. Local skills include iconography and painting, woodcarving,
pottery, basket weaving, traditional music, festivals and dancing.
People and Awareness
The people of Zanzibar are the essence of its quality as a tourist destination. They offer
visitors a warm and friendly welcome, and create an environment within which visitors feel
safe. The island’s distinctive culture is rooted in its people. These features enable Zanzibar to
stand out as a unique and attractive destination. They are valuable assets to be protected
and nurtured. As the anticipated growth in tourism will have implications for the
community, it will be important to ensure that steps are taken to mitigate any possible
negative impacts.
The growth of tourism means that there will be a much larger number of tourists on the
island at any one time, and there is also likely to be a larger number of immigrants living and
working in Zanzibar to meet the increased demand for labour. While the expansion of
tourism will create more opportunities for the local community in employment and
enterprise development, it may also give rise to some pressure on infrastructure, public
services and amenities. It will be very important that the impact on the community is an
explicit issue for consideration in the context of formal assessment of proposed new
developments
Maintaining and continuing to foster a positive attitude to tourism and tourists will be
important. Community-based tourism has been active on this front for many years. Key
priorities in the strategy of community-based tourism are:

To promote employment in tourism and encourage students to pursue careers in
the sector.

To promote knowledge and understanding of, and positive attitudes towards,
tourism.

To promote community participation in the industry through community-based
tourism enterprise initiatives.
Initiatives of the Zanzibar Commission for Tourism in addressing these objectives include
public awareness through a TV and Radio Programme, and training for people to get
involved in tourism, including setting up businesses. These initiatives, together with a variety
of smaller measures, combine to deliver a sustained stream of information to the
community and encouragement for people to become involved in the industry. They need to
be paralleled by positive responses to issues of concern to communities, such as access to
beaches, to ensure a healthy relationship is maintained between local communities and
tourism. Raising environmental awareness is of particular importance in a destination where
the health of the natural assets is of paramount importance to the future success of tourism.
Tourism in Zanzibar has traditionally been centred at or around beach hotels. As a result,
local communities located in or close to major attractions and areas of high tourist visitation,
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such as Nungwi, Kiwengwa and Wambaa, have benefited from tourism over the years mainly
as a result of the employment generated by hotels.
Box 1: A case study for Community Tourism Development in Zanzibar
There is a low level of public awareness about community based tourism practices. Currently
there are few organised community based tourism products that directly benefit the local
community to reflect the Zanzibar slogan of ‘Tourism for All’. Jozani Forest Reserves and Menai
Bay Conservation Area are the only villages that contribute a share of entrance fees to the
community. For example, 20% of the entrance fee collection from Jozani forest goes directly to
community as a community fund for the compensation of farmers and management and
maintenance of the mangrove boardwalk. About 22.4% of the government share is also used to
supplement the compensation of farmers within Jozani Forest. The contribution to the
community is mainly for the compensation and not ownership of the product itself. Hence
income to the community on these grounds is considered unsustainable. Therefore these villages
have not moved to the second generation of rural tourism and tourism development does not
contribute to local community members economically and socially.
Accommodation, Restaurants, Tour Operators and other services
Tourism accommodation facilities in Zanzibar range from basic guesthouses to 5 star luxury
boutique hotels. This wide range of accommodation provides for different types of tourists.
Quality control for accommodation facilities is very poor and the available standards and
classification system do not ensure that hotels provide the quality required for their
category. Furthermore, the hotel sub sector is characterised by low occupancy rate (56%).
Some 33 restaurants are included in the ZCT directory. This number excludes restaurants in
accommodation facilities. Service standards, although much improved compared with
former years, still vary considerably, with at times poor value for money being delivered in
some of the more expensive establishments. A total of 45 dive operators are listed in the
ZCT directory. The Lab observed that there are 261 tour operators. There may be other tour
operators because, in the absence of a strictly enforced licensing regime, ‘almost anyone’
can open up a tour company.
The main issues are: lack of regulation of entry into the industry e.g. anyone can set up as a
tour operator. Nighttime entertainment is rather limited, apart from bars and restaurants.
Some hotels have discos for their guests. Musical performances and other events are held in
informal venues, while cinemas are not found anywhere in Zanzibar. Stone Town is a thriving
centre for shopping. An extensive range of imported goods is on sale at what are claimed to
be considerably reduced prices, while a variety of curios (the majority also imported) are
also available. We would like to see a wider range of good quality local handicraft and
artwork on sale.
Access to finance
Most of the locally-owned tourism facilities and services operate at lower standards. This is
because most of the Zanzibaris who own accommodation facilities and tour operations do
have access to credit or lack information about potential sources of funds to upgrade.
Investment policies are not in favour of local investors and lack the right mix of incentives
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and taxes. High operating costs due to inadequate provision of basic service utilities (water
and electricity) hinder the ability of local investors to upgrade their facilities and services.
Customs and Immigration
Visitor facilitation in regard to customs and immigrations is considered to be not friendly and
not courteous. Delays occur at immigration on arrival especially when a large aircraft arrives
or a number of aircraft land at or around the same time. This can be alleviated by better slot
management. Also, staff shortages occur. Major changes in the present Customs and
Immigration facilities will be needed to cope with the projected increase in visitor arrivals.
There are plans to expand the current terminal handling capacity of 1.2 million passengers
per year to 1.6 million passengers per annum in accordance with need.
It has been recommended that improved and more streamlined arrangements for the
clearance of yachts and their passengers in Pemba will be needed if Zanzibar wishes to
target the yacht market. At present, visiting yachtsmen need to pass through a two-stage
process to clear Customs and Immigration in Pemba. They first have to go to the
Immigration Office in Chake to clear themselves and the crew and the second and final step
is to go to the harbour authorities to obtain an anchoring permit. Many yachtsmen think
that this procedure is too complicated and should be centralised.
Visitor Information
Visitor information services are available in Zanzibar, conveniently located at the main entry
points. However, the information office at the airport is rather hard to find and needs to be
expanded.
Medical Services
There are two main hospitals on the island, as well as some medical centres. The largest
hospital, Mnazi Mmoja hospital, is the best equipped, but without a recompression chamber
for use by divers. It is understood that the Chinese Government will be funding the
construction of a new medical facility at Uzini which could affect any prospect of promoting
Zanzibar as a destination for medical treatments. Instead, the island could be better
marketed as a place for visitors to come to recuperate from illnesses in their home country
with all the advantages of a pleasant climate and a healthy lifestyle.
Human Resources
Tourism sector in Zanzibar is already experiencing problems in the recruitment and
retention of suitably skilled managers and middle management staff. Bigger companies hire
managers from outside Zanzibar. This suggests the need to look into the match of training
and education services available in the country vis-à-vis the demands of the industry. More
work is still needed to convince establishments of the importance of investing in skills for
improved profitability and success. Only a few tourism companies in Zanzibar have a
structured training plan and human resource development budget. Barriers to pursuit of
skills and knowledge upgrading tend to be cost-related, the lack of adequate and quality
local supply of relevant support services. On-the-job training will likely remain a leading
training delivery method in the tourism sector.
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A lack of tourism knowledge and skills also contributes to a low standard of services.
Tourism education is one of the critical elements to achieving quality tourism products and
services in Zanzibar. In response to the rapid rise in tourism demand and the
acknowledgement of a need for tourism education, the government established a School of
Tourism within the State University of Zanzibar (SUZA). The Zanzibar Institute for Tourism
Development (ZIToD) which will form part of the School of Tourism is currently offering
vocational training in front office, housekeeping, food and beverages, tour guiding and
accounting. The institute also is authorised to run Confederation of Tourism and Hospitality
(CTH) professional courses, as it is an accredited CTH Centre. Yet, ZIToD provides only a basic
education, which is not sufficient for the second generation of tourism development.
(iii) Air Transportation
There are two functional airports, Abeid Amani Karume International Airport (AAKIA) and
Pemba Airport. AAKIA is the major airport in terms of passengers, serving mainly tourists
and businesspeople. It is served by many flights from Europe, Asia, and Africa as well as
inter-island and local flights. The airport has grown dramatically over the last decade and
continues to expand to serve the needs of international airline operators. Pemba Airport is
the second airport, but with only a small number of flights, compared with AAKIA. The
airport handles a limited number of flights per day serving tourism, trade and other social
economic activities. These airports have been playing a significant role creating enabling
environments and linkages between lead sectors such as tourism and trade and other
supporting sectors such as agriculture, and fishing.
Over the past decade, demand has increased dramatically (see figure 2.6 and 2.7) and the
mix of aircraft has changed leading to saturation of the operational capacities of these
airports. These changes coupled with inadequate or aged equipment/systems, inadequate
technical capacity of staff and inadequate infrastructure means Zanzibar must now increase
and improve the airports’ capacity to meet growing demand for better provision of airport
service, security and safety.
Figure 2.6: Aircraft Movement at Abeid Amani Karume international Airport
Source: Zanzibar Airport Authority
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Figure 2.7: Aircraft Movement at Pemba Airport
Source: Zanzibar Airport Authority
Abeid Amani Karume Airport has an asphalt concrete runway of 3022m in good condition
with strength PCN42 (Pavement Classification Number). It provides facilities for aircraft up to
Boeing 777 with passenger and landside structures suitable for those levels of use. In 2012,
the airport handled approximately 694,622 passengers. However, the airport has aged and
has inefficient fire tender and associated equipment, lack of ILS and outdated VOR for safe
lending that impairs the ability of AAKIA to ensure the safety of the airport and airport users.
In addition, the airport has inadequate facilities such as limited space in the departure arrival
lounge, inadequate washrooms, X-ray machines and air conditioning and lacks a conveyor
belt. The low quality equipment and services may impede the inflow of aircraft especially
wide board aircraft and hence negatively affect tourism and trade.
Pemba Airport
Pemba airport has an asphalt concrete runway of 1525m x 30m that was repaved in 1996
and is in fair condition. It provides facilities for aircraft up to F27 with passenger and
landside structures suitable for such levels of use. Currently, the airport handles
approximately 30,000 passengers per year. Over the coming years, the government plans to
upgrade the airport to accommodate B737 traffic. Forecasts show passenger numbers are
expected to reach more than 77,000 by 2025.
However, the existing airport offers inadequate basic infrastructure, such as runway length,
terminal building facilities and services to accommodate B737 to convince airlines and tour
operators to operate. It also lack security and safety equipment such as: adequate airport
rescue and fire fighting trucks, Airfield Ground Lighting (AGL), standby generator, perimeter
fence, steady water supply, proper drainage system, adequate office equipment and trained
personnel in related fields. A rapid improvement and major development of Pemba Airport
is essential to support rapidly growing tourist, local and international trade, easy
connectivity between East Africa and other countries in the world by allowing different size
of aircrafts to operate at the airport.
(iv) Sea transportation
There are five functional seaports in Zanzibar situated in Malindi and Mkokotoni for Unguja
and Wete, Mkoani and Wesha for Pemba. Malindi, the largest port in Zanzibar, currently
handles more than 90% of cargo throughput and tourist arrivals. The main berthing facilities
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consist of a 243m-long west wharf with water depth of 7m at South point and 13m at end
North point, and the 130m-long North Wharf with a maximum water depth of 4.5m MLWS.
The existing wharves are restricted to receive vessels greater than 13,000DWT.
In 2012, the port handled about 193,400 tonnes of cargo, and 65,100 TEU containers.
Meanwhile, the cargo throughput is continuously increasing along with the booming
development of the tourism and marine product industries. However, as the existing Malindi
port is close to the city centre of Stone Town, it has a limited stacking yard, insufficient
handling equipment and inadequate storage facilities. It also suffers from serious traffic jams
with city cars. This congestion, coupled with lower handling throughput capacity, restricts
the development of Zanzibar’s economy and its ability to meet trade and tourism targets.
Frequent ferry crossings between the port of Dar es Salaam and Pemba have increased the
demand for passenger berthing facilities. Sufficient cargo and passenger berthing facilities
are highly necessary to enable the development of business tourism.
Accessibility - National Airline and Ferries
Zanzibar currently lacks a National airline that could offer direct flights and minimise the
need for unwanted stopovers at the region and beyond. In addition, the country lacks sea
ferry services operating in the East Africa region, especially from Zanzibar to Nairobi. A ferry
service on these routes would greatly improve the accessibility to coastal tourism areas and
hence create significant links.
(v) Electricity
Electricity coverage in rural areas of Zanzibar is good mainly due to presence of the Rural
Electrification Project funded by Government of Zanzibar. While the supply capacity of
electricity increased from the limited 45 MW to 100MW of the new submarine cable,
frequent voltage deviations impaired electricity supply with poor quality in terms of services
especially to remote areas where most hotels are located. The reliability of electricity
continues to be a significant constraint in the growth and competitiveness of the tourism
industry. The use of emergency power generators increases the operational costs of the
hotels due to high cost of fuel and lubricant. Connection procedures are reported to be a
challenging phenomenon in accessing electricity and hence providing barriers to people and
tourism institutions that apply for electricity.
(vi) Water Supply
Zanzibar is endowed with plenty of water sources including groundwater, surface water and
rainwater. Ground water is the primary source of water for domestic and commercial needs
including tourism. However, availability of water supply services is highly influenced by the
availability of electricity in terms of coverage and quality. Among the limitation observed for
water supply include:
1. Lack/shortage of water supply and distribution. Shortage of water is caused by lack or
insufficient infrastructure for water production and distribution either through poor
budget or instability of electricity.
2. Degraded or poor quality of water. Salt water intrusion, encroachment of human
activities to water sources and non-equitably distributed water sources across the
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population of Zanzibar have led to degraded quality of water which may also affect the
tourism industry.
(vii) Waste Collection and Management
The hotel industry generates plenty of waste, both liquid and solid. Tourism areas should be
especially physically clean and hygienic. The current situation is not favourable in terms of
waste management since liquid waste is mostly disposed in the sea leading to pollution.
Furthermore and solid waste is not collected in Stone Town and other areas. Zanzibar
generates an estimated 650,000 tons of solid waste every day. Zanzibar Municipal Council
and other local authorities handle only about 30% of total waste. The remaining 70% is
mixed and indiscriminately disposed leading to an unfavourable environment for both the
health of residents and for tourist attractions. The Zanzibar Municipal Council and Local
governments do not have the capacity to clean, collect and dispose the waste generated due
to inadequate staff, inaccessibility of households due to poor settlement planning, poor law
enforcement, budget constraints and poor community awareness. There is also an
inefficient storm water drainage system. In most areas, storm water drainage is either
inexistent or narrowly covered infrastructure to accumulate abundant storm water due to
monsoon rains. Clogging of drainage systems produces a foul smell and is unhygienic. Weak
awareness of the users complicates the problem further. The absence of organised
wastewater disposal facilities including recycling and central sewerage system leave only
natural methods of disposal either in ponds or the sea. This leads to marine pollution and an
unhygienic environment for settlements close to waste ponds.
2.3 Conservation and Environmental Sustainability
2.3.1 Background
The importance of natural and cultural heritage as underpinning assets for tourism in
Zanzibar has been somewhat overlooked in recent years. Generally, the department and
tourism agencies have concentrated on marketing and accommodation and any direct
involvement with issues connected with the natural and cultural heritage have been limited.
The unique landscape of Zanzibar has been rated as the most important reason for tourists
to visit the country as is reflected in the latest tourism sector survey. Tourism operators
have generally not engaged with resource management or conservation issues and do not
see caring for the natural heritage as one of their immediate concerns.
2.3.2 The Present Situation
The environment has been facing a lot of challenges linked to the tourism sector over the
last ten years. Hotel development is often too close to or below the high water mark leading
to erosion. Hotels continue to illegally dump waste and litter. Social impacts of coastal
tourism are insufficiently monitored. Coral harvesting for construction continues to affect
reef systems and can contribute to coastal erosion. Destructive fishing techniques continue
to harm coral reefs.
All mangroves are classified as forest reserves since 1965 and existing and future marine
reserves place them under formal protection. However, sustained cutting continues to thin
mangrove forests; only half of Zanzibar’s mangroves can be considered undamaged. In
Pemba, the increase in salt farms is threatening the stands of mangroves and this is
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regarded as a priority by Pemba’s Department of Environment. Coordination between
sectors is ineffective and enforcement of regulation and legislations is weak. Linkages
between government and private sector on environmental issues are poor and there is a
general lack of awareness of programs covering coastal issues. For example:

Some buildings have collapsed and have been abandoned due to a lack of
maintenance. Several attempts to save structures have been initiated by the Stone
Town Conservation and Development Authority, and Department of Museums and
Antiquities, but have not shown any positive results so far. Zanzibar has many
Heritage Site but only seven historical sites have title deeds. Indeed the
infrastructure of these heritage sites is at poor condition. Management of heritage
suffers from a number of institutional, legislative, financial, and staff shortcomings.

Tourism facilities encroach on environment due to a lack of accountability and
commitment by the sectors concerned and overlapping management.

Erosion and poor coastal management because tourism interventions do not
consider Tourism Zoning Plan, poor design of coastal defence exacerbates coastal
erosion, proliferation of committees (Tourism Committees, and Natural Resources
Conservation Committee etc.) with little coordination and insufficient climate
change adaptation measures.

Drug trafficking because of insufficient control mechanism at entry points, low
accountability, low community involvement in fighting against drug trafficking and
youth engagement in substance abuse.

Inadequate awareness because of the community is not fully involved in tourism and
environmental planning processes and lack of a communication strategy that
identifies what, who, where, how and when to communicate.

Deterioration of the world heritage site and national heritage sites due to no regular
maintenance of the physical structures, no Cultural Heritage Policy, and inadequate
resources and prioritisation.

Traffic congestion in Stone Town caused by non-compliance with Stone Town’s
traffic Plan, and low accountability.

Hygiene and sanitation in Stone Town because there is no proper management of
solid and liquid waste. The carrying capacity of Stone Town is exceeded by the
demands of population.

Cultural benefits of tourism because of demotion of local Zanzibar culture, arts,
cuisine and culinary flavours.

Low community interests in tourism because of limited community understanding
and acceptance on heritage values and tourism in general, politician’s interruption
in the management of the heritage sites, increasing value of stone town brings
about pressure on violation of development and conservation principles of Stone
Town.

Inadequate employment opportunities for locals in tourism sector which is caused by
insufficient competence in the tourism industry, insufficient ZIToD curriculum in
hospitality management and lack of training policy for tourism industry.
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2.4 Tourism Governance
2.4.1 Background
It is critical to note that successful tourism development is not going to take place by itself,
or through the private sector. The government therefore has an important role to play in
accelerating the growth of the tourism sector by developing, implementing and monitoring
interventions around development process of the tourism sector. In order for this to take
place, sufficient institutional and organizational capacity, linkages and planning have to be in
place.
2.4.2 The Present Situation
The current policy framework governing the development of Zanzibar Tourism Sector
consists of several policies, plans, strategies, and regulations; including; Tourism Master Plan
(2003), the Zanzibar Tourism Policy (2003), and the Zanzibar Tourism Act No. 6 of 2009
(amended, 2012). This policy framework emphasises the need to effectively link tourism
with other economic sectors. The Zanzibar Strategy for Growth and Reduction of Poverty
(popularly known as MKUZA II) emphasises inter-sectoral linkages as a tool for enabling each
sector to benefits from the opportunities created by others. The Livestock Policy of 2009
advocates for investment in value addition for livestock products and promotion of
formation of strong livestock producers' associations so as to obtain the benefit of
economies of scale and escape the problem associated with the lack of appropriate
marketing infrastructures, absence of quality standards, control and assurance system.
The strategic assessment of the legislative and institutional framework on tourism
development and promotion indicates that although there is a comprehensive legislative
framework, there are many gaps in the actual implementation which have resulted in gross
inefficiencies and generally poor performance in the entire sector. Good strategies and
initiatives are developed, but there is no follow up to ensure the implementation of
recommendations or resolutions. This has tarnished the image of the Zanzibar Commission
for Tourism in providing effective leadership, guidance and monitoring of the tourism sector
in the country. In essence, the failures of the tourism sector are mostly attached to the poor
coordination and the lack of tools to monitor the performance of the tourism sector.
The ZCT, having been assigned the responsibility of implementing tourism development and
marketing in Zanzibar, has not been able to perform to the required standards – over the
past years, its focus was more on international marketing with little emphasis on domestic
marketing, market research and product development – and this has not yielded good
results, Overlapping and duplication of tourism activities between the stakeholders
(including local governments) is quite evident and there is poor communication between
these entities – in some instances they might be seen as competing against each other.
Respective regulatory instruments have not been adequately translated into workable
forms. For instance, there is neither implementation plan nor monitoring and evaluation
plan to guide and track the implementation of tourism policy. No regulations have been
developed to guide implementation of Tourism Act No. 6 of 2009 with its amendments of
2012. The existing legal frameworks have not been sufficiently harmonised to the extent the
implementation of some Acts impede tourism development. In addition, the Tourism Act of
2009 itself made little provision for involvement of police force in tourism security. Limited
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organisational capacity, shortage of financial resources, lack of synergy and awareness are
some of the important reasons for the above shortfalls.
Weak enforcement of laws and regulations governing the tourism industry is associated with
lack of awareness in law obedience, low collaboration from stakeholders in law
enforcement; corruption; and low capacity to law enforcers in terms of both skills and
facilities. It is evident that inappropriate interpretation of laws, lack of incentives for citizens
to collaborate in law enforcement due to lack of integrity and lack of confidentiality; low
level of education for law enforcers and lack of modern equipment and facilities are the
principal reasons behind the above weakness.
Weak linkages between tourism and community economic activities are associated with low
production, poor quality and lack of marketing information. In addition there are few
employment opportunities for the local community particularly in higher rank positions in
hotels and restaurants due low tourism related skills and a negative attitude towards
tourism amongst locals. The situation also linked to weak enforcement of labour law and
regulations. Likewise, compensation schemes have not been attractive. People have been
dragged out of their places through middleman who normally take a large share of the price
paid by investors for land acquisition. There is also no clear guide on practicing Corporate
Social Responsibility (CSR). Some companies practice CSR through the local Sheha without
the wider involvement of surrounding communities. Some communities have complained
that some of the assistance offered by investors is not used for its intended purpose.
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Chapter 3: Links to overarching policy framework
3.1 Introduction
This chapter outlines how the envisioned aspirations for R4P initiatives link with overarching
policy frameworks.
As seen in the situation analysis, tourism in Zanzibar does not happen in a vacuum. It is
affected by a range of global, national and local factors over many sectors. Likewise, tourism
policy and plans are linked to global, national and sectoral policy frameworks, from
Millennium Development Goals to MKUZA II and tourism master plan. It is important to
acknowledge how the output of the Tourism Lab fits into other frameworks, as coherence
with these will enable the success of the Multisectoral Tourism Development Plan while
contradictions would lead to mixed messages and make it less likely that the plans will be
implemented.
3.2 Global policy framework – the UN Millennium Development Goals
The United Nations Millennium Development Goals (MDGs) have been the over-arching
global framework for development since 2000 following the adoption of the Millennium
Declaration. The eight goals are each categorised into targets to be met by 2015.
Out of the eight goals, four have a direct impact on the tourism sector:

Goal 1 aims at the “eradicating the extreme poverty and hunger” through job creation,
among other strategies. Target 1B argues the “achievement of decent employment for
women, men, and young people”. The tourism sector has been recognised as a key
factor in job creation and can help to fulfil the demand for employment.

Goal 6 calls for “combating HIV/AIDS, malaria and other diseases”. These killer diseases
can weaken the tourism sector in the developing country destinations and tourism itself
is one way of diseases spread.

Goal 7 aims to ensure environmental sustainability by integrating the principles of
sustainable development into country policies and programs reversing loss of
environmental resources (Target 7A) and reducing biodiversity loss, achieving, by 2010,
a significant reduction in the rate of loss (Target 7B). While Zanzibar’s environmental
assets are crucial to its attraction to tourists, the sector can be damaging in its use and
degradation of resources.

Goal 8 calls for a global partnership for development. It is recognised that cooperation
between the public and private is one of the important factors in the implementation of
national policies, strategies and development plans. A fruitful partnership can ensure
the benefits of new technologies, products and services can be spread around many
people.
3.3 Long-term national framework: Vision 2020
Since the 1990s, national policies have included a special focus on poverty reduction in
addition to the measures to sustain a sound macroeconomic framework. In 2000, the
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government adopted Vision 2020, which broadly articulates the aspirations of Zanzibar that
are to be achieved by the year 2020.
With regards to tourism, Vision 2020 set out a future where Zanzibar has a high level of
employment in the modern sector (50 percent to be employed in tourism and free zones)
and a high contribution to GDP by tourism. It also notes the importance of building skills in
sectors/resources where Zanzibar has a comparative advantage over its neighbours,
including in tourism.
Since then dynamic efforts have been taken in the tourism industry to increase its
contribution to the economy. The major focus is to enhance Zanzibar as a famous tourism
destination in the world while promoting domestic tourism. The plan have been undertaken
to coordinate in tourism resources and develop tourism infrastructure. The efforts have
given emphasize to increase facilities and innovation for tourism products and services. High
concern was placed and continued for achieving more sustainable tourism development.
However, a review of Vision 2020 done in 2010 suggested that:
“The general perception discerned from consultations with various stakeholders is
that tourism contributes little towards poverty reduction. The reason is that it is not
generating incomes for the poor or the local informal enterprise, it is not involving
local tour operators, and the rural smallholder farmer is by-passed in the production
and distribution of goods and services consumed by the tourism sector. Rather,
goods that can be produced by local farmers with the appropriate incentives are
imported. In some cases, hoteliers have contracted farmers outside Zanzibar to
supply the food requirements of their hotels. Local tour operators cry foul about their
exclusion from participation and patronage from tourists who arrive through
package deals.”
(Review of the Zanzibar Development Vision 2020, pp. 12-13)
In addition:
“The interviewees emphasised the need to diversify the economy from the past
structural changes, which was, by and large, diversified from Agriculture to trade
and later from trade to tourism (both were from mono sector to mono sector).”
(Review of the Zanzibar Development Vision 2020, p. 34)
These comments show that tourism has not kept pace with projections in terms of its
benefits for the wider economy of Zanzibar or poverty reduction. Furthermore, it highlights
the need for tourism to link with other sectors to ensure it generates incomes across the
population.
3.4 Medium-term national framework: MKUZA II
The cross-sectoral nature of tourism means that a coordinated approach is required across
various government agencies and stakeholders, to remove impediments to development,
facilitate investment and ensure that a memorable and enjoyable experience is assured for
visitors. This ‘whole of government’ approach has to be driven from the very highest level
and has to include commitment to tourism development at a local, provincial and central
government level. The government has been using medium term national strategies as the
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instruments of guiding the implementation of the necessary actions for attaining the Vision
and the Millennium Development Goals. Given the importance of tourism, Zanzibar has
often placed the sector as a high priority within such plans.
3.4.1 Zanzibar Poverty Reduction Plan (ZPRP) (2002-2005)
In 2002 the government adopted ZPRP, a three-year medium term program that mainly
focused on poverty reduction. The ZPRP involved a strategic selection of priority sectors
deemed to have a more direct impact on poverty reduction; more resources were allocated
to the sectors. Tourism was not selected as the priority sector.
3.4.2 Zanzibar Strategy for Growth and Reduction of Poverty - ZSGRP/MKUZA I
(2007-2011)
In 2007 the government of Zanzibar formulated and adopted ZSGRP, which is more
popularly known in its Kiswahili acronym, MKUZA I. ZSGRP was outcome-based and thus it
clustered the strategies and interventions around linked goals and outcomes. In addition,
the plan put a balanced weight between non-income poverty reduction efforts and efforts
for reducing income poverty through attaining high and broad-economic growth. Tourism
was considered among the sectors for economic growth.
3.4.3 MKUZA II (2011-2015)
The Strategy for Growth and Reduction of Poverty also addresses tourism development
during the period for 2011-2015. MKUZA II has three strands: (1) growth and reduction of
income poverty; (2) social services and well-being; and (3) good governance.
The plan gives emphasis to develop exciting and iconic tourism initiatives, to proper
management of existing tourism destinations and a focus on promotional activities. Within
this period, Zanzibar targeted a growth rate of 6.8 percent by 2015 where the numbers of
tourists were estimated to reach 250,000 by the same year. According to the MKUZA II this
could be realised through the improvement and diversification of tourist products,
strengthening linkages with other sectors, promoting up-market tourism and increasing
marketing activities abroad.
3.5 National Tourism Policy
The Government of Zanzibar (GOZ) has adopted several tourism development initiatives,
such as the Zanzibar Indicative Tourism Master Plan to enhance the sustainable tourism
development in the country (see table below). These are covered in greater detail in the
situation analysis on tourism governance presented in section 2.4. Another initiative is the
introduction of “Tourism for All” that aims to engage all key stakeholders.
Figure 3.1: Tourism Plans in Zanzibar
1983-1992
1995
1995
1996
2002-2012
The Zanzibar Tourism Master Plan set the pace for development but was only partially
implemented.
Tourism Infrastructures project for Zanzibar
Land Use Plan includes Tourism Zoning Plan
Zanzibar Tourism Promotion Act No. 9
Indicative Tourism Master Plan
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2004
2009
2012
Tourism Policy: Directing the development of the sector
Zanzibar Tourism Act No. 6
Zanzibar Tourism Act No. 7
Many of the plans and policies have had a similar vision of high-quality tourism that is
environmentally sound and promotes poverty reduction both through employment and
linkages with other sectors. However, the plans have often been only partially implemented
and so many of the problems they aimed to tackle have not improved or even become
worse.
A matter of concern for the Zanzibar tourism industry is the lack of a clear integrated
tourism vision that outlines tourism development targets at the national level meaning
tourism is not well connected to other sectors. Although a national tourism policy exists, as
well as a tourism master plan, which is the nation’s strategic plan for tourism development,
no specific and comprehensive multi-sectoral programme exists for tourism development.
This is a gap with notable consequences in terms of a lack of tourism development in the
country.
Other sectors should be engaged to support the development of tourism. For example, the
development of infrastructure could be carried out in tandem with the Tourism Master Plan.
Priority for infrastructure development (e.g. roads) could be directed and placed in areas
with a potential for tourism growth. Thus, the Tourism Lab has formulated the Multi-sectoral
Tourism Development Program (MTDP) to further enhance tourism development in the
country and make the sector one of the key sectors in the economic transformation
strategy.
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Chapter 4: Programme description
The principal role of the Multisectoral Tourism Development Program is to stimulate the
growth of Growth Domestic Product (GDP) and thereby improve the well-being of the
people of Zanzibar. As seen in the situation analysis, changes must be made within the
tourism sector so that it can contribute to its full potential.
4.1 Overall Vision, Goals and Specific Objectives
4.1.1. Vision
The vision for Zanzibar as a tourism destination should consider, among other elements,
sustainability, prosperity, affordability and growth. Therefore, the vision for the
Multisectoral Tourism Development Programme is:
“A sustainable tourism industry that cares for norms and cultural diversity, protects the
natural environment, and shares unique and rich experiences with visitors while providing a
leading role in economic growth and decent employment”.
4.1.2 Goals
The overall goal is to attain self-sustaining economic growth by increasing the number of
tourists and their expenditure.
Specifically, the program aims to:

Create a regulatory environment that is conducive for the effective operation of the
sector and forward and backward linkages.

Accentuate and manage tourism resources for current and future generations

Improve accessibility, products, infrastructure and amenities that provide a quality
experience for both residents and visitors.

Conduct effective marketing and promotion focused on priority markets.
4.1.3 Growth Scenario and Strategic Assumptions
With strong performance in marketing and promotion, tourist arrivals could increase by 10%
a year. The average expenditure and average length of stay are expected to increase by 7%
and by 6% a year, respectively. This will result in total tourist expenditure to quadruple
between 2013 and 2020 to almost two billion US dollars.
Figure 4.1: Medium growth, high quality scenario
Annual Growth
A. International arrivals
B. Average spend per person, per day
(US$)
C. Average length of stay
Total expenditure (US$ billion) [A x B x C]
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384,536
$465.64
2020
511,817
7%
2013
275,150
$362.00
6%
6
7.6
9.0
0.60
1.36
2.63
10%
$570.43
30
Figure 4.2: Forecast total expenditure of tourists in Zanzibar (in 2014 US$)
A growth scenario also has been developed the number of domestic visitors grows by 12 per
cent per year, thereby generating 11,302 visitors by 2017 shown in Figure 4.3.
Figure 4.3. Domestic Visitors
Domestic Visitors
Annual Growth
12%
2013 (Base line)
9,850
2017
14,530
2020
20,414
Source: Commission for Tourism, 2013.
For achieving the set goals the following should be taken into consideration:

The infrastructure especially in meeting power and water demand, and sewage
disposal and wastewater treatment should be improved.

Better management and monitoring of the island’s security and natural resources
particularly along the beaches and dive sites should be reinforced.

The product should be expanded to cater for the new market segments.

Community-based tourism projects need to be developed and supported.

A higher level of marketing resources will be required to increase number of visitors

Zanzibar environmental quality is crucial for its tourism industry. If the quality is
degraded, then Zanzibar tourism will suffer severely.

There remains a major need on refurbishing and upgrading existing tourism
establishments particularly accommodation and restaurants.

The public sector should create an economic and regulatory environment that will
encourage private sector investment.

There should be a considerable investment in training and skill development.

Airport terminal capacity should be improved to handle the projected numbers for 2017
and 2020.
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4.2 Program coverage, target population and time frame
The program builds on MKUZA II emphasising on growth acceleration towards realising
aspirations of Vision 2020. The program will be implemented throughout the country with
the aim of allowing all citizens to benefit from tourism, whether directly through
employment or indirectly through the value chain. The program is expected to last six years
in two phases, i.e. from 2014/15 to 2020/21, whereby phase one starts from 2014/15 to
2017/18 fiscal year.
4.3 Implementation principles and guidelines
The implementation of this program requires the identification of resources and preparation
of budgets that take into account the objectives and activities developed in the program.
The following measures will be taken in order to ensure optimal implementation of the
MTDP:

Get relevant stakeholders, both private and public, involved in the implementation of
the program.

Ensure that the program is well understood at all levels.

Take steps to assign responsible MDAs for each key target in the program.

Prepare annual work plans and budgets for implementation of the program as part of
the annual MTEF based budgeting exercise.

The program’s activities are disaggregated into specific MDAs targets. Steps are to be
taken to ensure that MDAs develop detailed activities to implement and realise assigned
targets.

Ensure that the Annual Budget process is directly linked to the objectives and targets set
out in the Program.

Set up a ministerial steering committee to overseeing and coordinating the
implementation of the program.

Ensure that the available human resources at the Delivery Unit adequately respond to
demands of the program and that it regularly involves staff in all relevant activities.

Employ monitoring and evaluation mechanisms to assist in assessing the successes and
failures of implementation and taking appropriate measures.
 Ensure budgetary provision for the monitoring and evaluation of the program.
4.4 Program components with their strategic result framework
The program set out four strategic components for the future growth of the industry. The
details are available in the Appendix I.
4.4.1 Marketing and Promotion
Specific goal: To conduct effective marketing and promotion focused on priority markets
The purpose is to establish and maintain efficient branding that will identify, register and
promote Zanzibar brands, towards a multi-sectoral tourism industry that will increase quality
spending visitors, repeat clientele and promote domestic tourism.
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Issues/Obstacles

The Zanzibar Tourism Policy (2004) stipulates very general guidelines on how the
marketing and promotion of tourism products and services ought to transpire. Yet, the
institutional arrangement for tourism marketing in Zanzibar is not well defined between
the public and private sector. More importantly, the current legal framework presents
significant challenges especially in administering and implementing consistency as well
as uniformity between private and public sector tourism practitioners. Marketing and
promotion of tourism is done in an ad hoc manner. Furthermore, the emphasis has been
placed more on international tourism rather on the domestic and regional markets.

Tourism in Zanzibar has been marketed without a formal strategic plan. This has resulted
marketing and promotional activities to be carried out without clear measurable aims,
objectives and targets that would enable accurate measurement of marketing
approaches and costs. Also, lack of a marketing strategy has led to little detailed
planning involving marketing research.

Zanzibar has been promoted as a beach extension and therefore it loses its full potential
as a value-added single beach destination.

Zanzibar Commission for Tourism is faced with insufficient technical know-how for
marketing and promotion activities. It also relies heavily on travel trade show
promotions. There has been heavy reliance on traditional methods of marketing,
specifically printing promotional items, which is very costly and less efficient.

The development of tourism has been weak due to lack of comprehensive tourism
master plan, which would have included branding and marketing guidance.

Lack of recognition, development and registration of potential Zanzibar brands has left
other aspects (people, history and heritage) disjointed from the tourism industry. A
prosperous national brand should symbolize and represent the diverse elements that
comprise a nation.

Going online is inevitable. Modern marketing tools could attract both the international
and domestic markets, specifically the young generation who would be keen to explore
Zanzibar.
Strategic Objective 1: A holistic brand for Zanzibar, which goes beyond sun, sand & sea is created
and promoted.
Output
 Joint Marketing practices using PPP amongst stakeholders are enforced
 The Commission for Tourism has a qualified pool of staff members.
 Presence of productive & implementable Zanzibar Marketing Strategy
 Entities to handle branding, marketing & promotion are established
 Modern marketing and promotion tools are used
 Cost-effective e-marketing strategy is formed.
 Zanzibar Tourism markets are segmented, diversified and differentiated.
 External auditing of the marketing and promotion activities is introduced
Outcome/Results
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
Zanzibar is recognised as a destination that provides experience beyond sun, sea and
sand using national brand comprising people, heritage and culture.
Proposed Actions
Currently, national marketing is done on an ad hoc basis, which prevents Zanzibar from
enjoying its potential in terms of both international and domestic tourists. Marketing
initiatives guided by legal framework, which will ensure that the marketing of the Zanzibar’s
tourism products is done in a coordinated manner are therefore critically required. This
objective therefore suggests strategic interventions and actions to grow the number of
international, regional and domestic tourists travelling to and within the country as follows:




Finalise the existing current Draft of the Zanzibar Marketing Strategy Plan - As stated in
Chapter 2, tourism marketing currently takes place without direction from an overall
strategy or plan. This intervention focuses on the development of a focussed and
coherent marketing strategy for international, regional and domestic markets. Trade
shows and exhibitions are an important forum to market the Zanzibar’s tourism
products to a wide range of tour operators, tourists and travel agents. The presence of a
marketing plan will ensure that Zanzibar is effectively represented at all important
tourism trade shows and exhibitions. In doing so, institutional alignment and
cooperation between all tourism stakeholders is important as such collaboration can
reduce the cost and increase the reach of the shows.
Incorporate tourism in Branding Strategy (Agency) - The establishment of a new,
creative, competitive and compelling identity that accurately reflects the experience,
promise and delivery capability of Zanzibar has long been a cause for concern. Tourism
products and services should be added in the existing branding committee under MTIM
to create destination brands, which should serve as competitive identities for Zanzibar;
representing the core essence and enduring characteristics of a destination. The new
destination brand should be able to act as a geographic locator for the natural and
cultural tourism assets and icons Zanzibar possesses.
A brand awareness
communication plan should be developed to ensure that the country projects a
common, desirable picture and a unified visual message and that consistency in
messaging is maintained. The communication plan should also promote cooperation
between the various tourism stakeholders across the entire spectrum. To deliver the
brand value, alignment is needed within the tourism sector to ensure that the “brand
promise” is effectively, efficiently and consistently delivered.
Establish a National Marketing & Promotion Bureau – The major role of the bureau is
to streamline branding and marketing efforts across sectors. By using PPP approach,
cross-cutting various subsectors will assist in proper benchmarking, accountability,
transparency and clear goals for marketing whereby all the parties involved agree on
what constitutes a successful outcome for any marketing or ‘branding’ plan.
Create an online platform and modern marketing tools - Traditional marketing
mechanisms such as brochures are no longer sufficient to attract tourists in an
increasingly digital world. In particular, tourists increasingly look for information online
or through other more interactive mediums. The Zanzibar national tourism website
currently advertises tourism products, but this mechanism is weak, and not considered
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best practice in other countries. Furthermore, it is not user-friendly, and limited in its
reach. While this objective does not seek to replace the traditional marketing
mechanisms, it puts forward critical areas of development to increase the reach of the
marketing in the country. Traditional marketing mechanisms need to be addressed
through the development of the marketing strategy that led to creation of an online
platform with social media components, such as Facebook, Twitter and YouTube, in
order to gain competitive advantage as well as reducing cost of marketing and
promotion.
 Introduce quality management control system for tourism practitioners - Given
tourism industry is private sector driven though the public sector has the mandate to
regulate the industry, it is inevitable to introduce external auditing of the industry
especially marketing and promotion tools to ensure the interests of all parties are met as
per national tourism policy and the country national policies and plans.
Strategic Objective 2: Zanzibar stands out as an attractive and popular destination due to
clear and coordinated marketing
Issues/Obstacles
There are insignificant joint marketing efforts within the tourism industry leading to lack of
consistency in marketing and promoting destination Zanzibar. Although the Zanzibar
Commission for Tourism (ZCT) has the mandate for destination marketing and promotion,
the private sector also carries out marketing activities and at times even destination
marketing. There is lack of coordination between actors, therefore creating an unclear
international brand image for Zanzibar.
Output
Guidelines in marketing and promotion are formulated.
Outcome/Results
There is a consistency in marketing and promotion of destination Zanzibar within and
outside the country.
Proposed Actions

Create branding, marketing and promotion code of conducts for tourism practitioners A common guidelines on Branding, Marketing & Promotion need to be created and
introduced to tourism stakeholders registered and operating in Zanzibar, as a guideline
for implementing destination marketing and promotion. This particular code of conduct
should be a principal guide and reference for users in support of day-to-day decisionmaking. It is meant to clarify a destination’s mission, values and principles, linking them
with standards of tourism operations. The codes of conduct should offer an invaluable
opportunity for tourism stakeholders to create a positive and competitive identity for
Zanzibar, which can lead to a more steady tourism growth.
Strategic Objective 3: Products and services for tourists are diversified with Zanzibar's unique selling
points realised to their full potential.
Issues/Obstacles
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There is a claim on the quality based tourism products and services to the visitors as many
have been developed in an ad hoc manner, for example the booming spice farms; basic
facilities such as washrooms are unavailable or not functioning at majority of attractions and
service providers. Tourism operators do not offer holistic experiences and thereby raise the
issues of credibility, authenticity and value for money for the service provided. In this
context, there is a need for standardized system to monitor and evaluate the performance
of tourism products/services that ensure visitors’ expectations are met and positive
reputation of the destination Zanzibar is maintained.
Outcome/Results
The service provided to visitors met the set East Africa Standard/Competitive advantage
with unique selling points realized in their full potential.
Outputs
Quality control of tourism products and services introduced
Proposed Action

Introduce quality management control system for tourism businesses - Poor quality
products and standards below visitor expectations can undermine the long-term
sustainability of a destination Zanzibar. Product quality and standards influence visitor
satisfaction, their length of stay and expenditure, and their likelihood to visit again or
refer the destination to a friend. The Zanzibar Commission for Tourism currently with
the mandate of developing and maintaining tourism products and services to join forces
with the Zanzibar Bureau of Standards (ZBS) to introduce a Quality Control Scheme of
tourism products and services.
4.4.2 Tourism products, infrastructure and services
Specific goal: To improve products, infrastructure and amenities that provide a quality
experience for both residents and visitors.
A tourism product consists of physical, experiential and emotional elements that contribute
to a destination’s experience. This also acknowledges the complexity of a tourism product as
it relates to the combination of services, commodities, material and immaterial items
including the whole travel experience, individual experiences, impressions and things learnt
at a destination. The purpose is to be a destination that offers a multi-dimensional range of
visitor experiences and therefore in a better competitive position.
Strategic objective 1: Promote a diversity of appropriate tourism products and visitor
activities within the destination that enhance the visitor experience in order to improve
yield and increase length of stay.
Issue/Obstacles

Visitor expectations are constantly rising and the quality of accommodation is their first
priority. Although some of the stock on Zanzibar is relatively good, many are of low
quality and there is a need to improve through refurbishment or replacement and
controlled new development. There is also a need to diversify the accommodation offer
to accommodate an expected growth of arrivals. In particular, there is scope for more
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high quality, small scale ‘boutique’ with ancillary facilities for visitors e.g. leisure, sports,
meeting and function facilities.

Zanzibar has a very limited number of tourism attractions for catering both domestic
and international markets. There are opportunities for new and improved attractions,
particularly where they can appeal to families (family tourism) and help disperse visitors
away from the pressured sites such as Nungwi and Kiwengwa.

Diving/snorkelling is the main attraction and needs to be sustained not only by
improving the management of the marine environment but also by developing new
marine oriented products. There is a strong view that the dive product needs refreshing.
However, there are environmental concerns that must be addressed.

The standard of most land-based attractions (for example Spice farms/tours Agrotourism, Museums, Monument, and Botanic Gardens) is reasonably low to medium,
and there is a need for enhancement at many of these sites.

The craft market in Stone Town is an important addition but needs to be developed
further perhaps in a more prominent location with more local producers, better
presentation and promotion.

It is important to avoid replicating what is on offer at other destinations. In the way to
add new attractions, the Botanic Parks, the spice farms, nature based integrated resorts
in our small islands are all good examples of distinctively and differentiated Zanzibar
attractions and it is important to build on this. The priority should be to identify other
opportunities that will add to the special local experience. Specific opportunities to
develop include the improvement and add value to Jozani National Park, Kiwengwa
Forest Reserve, Masingini Nature Reserve and Ngezi Forest Reserve without
compromising its nature and sustainability; and opening specific national gallery.

Given our target markets, the range of restaurants in Zanzibar is a particular strength.
There is a need to capitalise on this, raise standards further and make more of local
cuisines and dishes as a selling point. Although little food is grown on the Islands, there
are agricultural and fishing initiatives that need to be supported and links developed
between the farmers and the tourism sector.

Whilst there are some notable exceptions (People and Palace), very little has been done
to make the visitor, both domestic and inbound, aware of Zanzibar’s heritage. The
Department of Archive and Antiquity is doing some good work in this respect by
providing access to sites of natural and built heritage but has limited resources at its
disposal. The presentation and interpretation of physical heritage and culture is of
interest to many visitors and, presented in the right way, could help encourage visitors
to explore further afield, forming the basis for a tour or trails around Zanzibar. The
network of sites should be promoted with better signposting and a high quality route
map/guide book available throughout the Zanzibar.

Events and festivals have an important role in contributing to the promotion of a
destination image, enhancing the visitor experience, extending length of stay and
overcoming seasonal visitation. There are an array of successful and unique festivals and
events (small to large scale) that attract visitors to Zanzibar but also provide
entertainment and recreation opportunities for residents. ZIFF, Sauti za Busara and the
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recent trade fair have already undertaken considerable work to coordinate events and
festivals for Zanzibar. Yet, there is the need to protect and enhance the development of
appropriate cultural and heritage product and experiences within Zanzibar.

Pemba Island, with a small amount of accommodation and some of the best diving sites,
continues to perform relatively well in tourism terms. However, the Island needs
appropriate development to help support the local economy. In tourism terms, the
Pemba Islands rely on their world-class diving but there are opportunities for
diversification and the creation of a distinctive product based on the natural resources
of the island. Pemba Island and some small islets (such as Chumbe and Mnemba Islands)
already represent a genuine Zanzibar experience to a large extent. It is important to
maintain this character with appropriate, sustainable development and facilities. There
must be an eagerness to reinforce this image through the ‘greening’ of the Islands and
its tourism product.
Output

The accommodation capacity and quality increased and improved respectively.

A range of tourism products is developed.

The dispersal of visitors into the destination surrounding Zanzibar, such as Tanzania
Mainland, to take advantage of the range of tourism products available outside of
the country encouraged.

Increase visits around Zanzibar by developing routes and/or day tour packages to
incubate domestic tourism increased.

The presence of tourism related retail outlets in rural areas encouraged.

A more detailed event audit to accurately determine and promote the range, scale
and characteristics of festivals and events held in Zanzibar developed.

Number of visits, average length of stay and average spending by individual visitors
increased.

Community based tourism products increased.
Outcomes
The strategic objectives expected to provide the following outcomes:

Increased number of improved local investment projects;

Diverse tourism products;

Bring up market tourists;

Increased revenue collection;

Increased employment and benefit of tourism realised at community level;

Empowered community economy;

Stimulate professional conservation of heritage sites, efficiency and sustainability.
Proposed Actions
It is important to note that government is not expected to own tourism products, but rather
to create the enabling environment for product development to take place. One of the key
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38
elements of product development is investment attraction and this is therefore an
important component of proposed interventions. High priority areas that have been
identified that need active government support and private sector investment are as follows
(the list is not exhaustive and will be updated on annual basis)
The first consideration for product development is improving the existing tourism assets.
These areas are currently able to attract high tourist numbers and have unrealized tourism
potential which, if developed fully, can play a catalytic role in the long-term sustainability of
the tourism economy. This area need to be defined with reference to its appeal, the extent
to which it is able to attract both international and domestic tourists. Given the limitation of
financial resources the priority is given to the following:

Re-organizing spice tours to Spice/Agro Tourism Village.

Synchronization of artificial (manmade) attractions/activities within existing
protected areas (bungee jumping/zip-lining) in Unguja and Pemba.

Cultural heritage conservation & tourism sector support project

Expanding of Sports Tourism – Sports Village offering indoor and outdoor games

Conduct Trade & Travel fairs and shopping festivals
There is an increasing expectation that the benefits of tourism should not only be
concentrated in a few key traditional tourism areas, but rather that there should be an
equitable spread across the country, including rural areas. There is a need for Zanzibar to
facilitate the development of tourism products in those areas that are not defined as major
tourist attraction areas. Key actions to achieve this are (i) the identification of tourism
product potential in uninhabited Small Islands, and (ii) feasibility assessments and market
intelligence for such potential products. The forthcoming tourism master plan combined
with market research and feasibility studies will best describe areas where product
development needs to occur. However, there are potential projects that have been
identified across the country which need immediate exploration and viability assessment.

Establishment of Eco-nature integrated attractions in an uninhabited Small Island Scale up tourism development by establishing modern and eco friendly tourism
attractions on uninhabited small islands.

Establishment of Circuit for Soft Adventures & Botanic Gardens (Unguja & Pemba) The capacity within Zanzibar to further develop a range of special interest products
around nature is exceptional since the country has a unique resource base on which to
establish a distinct competitive advantage over other countries.

Construction of Waterfront Bay with Marina - Scale up tourism development by
establishing water front bay that cater for both domestic and international visitors

Construction of world class infrastructure (4* hotel MICE concept)

Upgrade existing tourism business entities (accommodation, tour operators,
restaurants, souvenir shops) - For destination Zanzibar to become competitive it must be
promoted as low volume high quality destination. Given that scenario the existing
accommodation units must be upgraded to meet the required market. In this respect,
within the time frame of this program the new entrants should be of four to five stars.
Identified Project:
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The identified project under this category considers five criteria, namely game changer,
matches demand to demand, create an iconic experience, encourage yield and length of
stay, creates additional capacity, facilitates new niche higher yielding visitor markets, and
encourages seasonal dispersal of visitors. Following the set criteria, the following projects
have been identified and should be implemented within time frame of this program:
Figure 4.4 Proposed Project
S/n
1
2
3
4
5
6
7
8
Project
Developing eco-nature integrated resorts in selected small
islands
Establishment of soft adventure and botanic gardens in
the forest reserves and marine protected areas
Development of Zanzibar water front bay (with
restaurants and bars and yachting facilities)
Expanding of Sports Tourism – Sports Village offering
indoor an outdoor games
Upgrade existing tourism business entities
(accommodation, tour operators, restaurants, souvenir
shops)
Construction of world class infrastructure (4* hotel MICE
concept)
Cultural Heritage Conservation & Tourism Sector Support
Project
Conduct Trade & Travel fairs and shopping festivals
Mode of Investment
Private Public
Partnership
Private Public
Partnership
Private Public
Partnership
Community, public and
private sector
Public and private sector
Private Public
Partnership
Community and
government
Private and Public Sector
Strategic objective 2: improved Airport and Seaport infrastructures and facilities capacities so as to
enhance tourism and related economic sectors development by 2017
Issues

A lack of adequate infrastructure and supporting facilities can limit the realization of
tourism potential at a destination. Best practice in other successful destinations has
shown that the development of adequate infrastructure and facilities helps a destination
develop as a good place to live, to do business and to visit. The main issues identified to
hinder the entry points against providing quality service and improving its contribution
to the economic growth are inadequate equipment, services and other supporting
infrastructure. Although airport runway allows long haul capacity (Pavement
Classification Number 42), the main constraint is the terminal itself. There is severe
congestion at peak arrival times. The need to increase capacity in the terminal to make
passengers safe and comfortable is to be addressed.

Greater air access has been called for repeatedly during various forums during the
development of this program. The fact that the Zanzibar does not provide access to
direct flights from international destinations has a negative effect on its ability to realize
the potential number of visitors to the country.
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
The ancillary interfaces of immigration and customs can also come under pressure at
peak times leading to service quality issues. Other constraints are the limited facilities
for screening outbound baggage and the customs procedures for inbound baggage.

The seaport facilities and services are inadequate in the light of the large number of
passengers that seek to disembark on peak days.

There have been received views in support of the establishment of national carriers. It is
argued that this would ensure sustainability in terms of the air travel market and
thereby foster effective competition, which will encourage a downward drive in the cost
of airfares over time. The establishment of national carrier would not represent a shortterm solution to this prevailing problems, but that does not mean that option might not
be reconsidered at some time in the future. In order to give the tourism industry the
fillip it needs in the short term, attention needs to be given to the issue of pricing by the
present airlines, and the potential for greater competition on air routes in and out of
Zanzibar.

Apart from international accessibility, there are number of shortcomings to internal
accessibility. There are also various issues associated with taxi attendance at the airports
(training, tariffs, and metering) that are currently being addressed by tourism
stakeholders.
Output

Instrument Landing System (ILS) put in place.

New terminal building at Abeid Amaan Karume International Airport completed

Facilities at all entry points whereby Karume International Airport and Seaport
improved.

Speed up the construction of Mpigaduri new port
Outcomes
The existence of quality of equipments and facilities at the entry points, both in Unguja and
Pemba Island.
Proposed Actions:
The provision of tourism-relevant infrastructure is a critical aspect of developing the tourism
sector in Zanzibar. Tourism products require good quality infrastructure to ensure their
viability. In this context, the following action should be implemented:
 Procurement and install ILS at AAIA
 Complete the construction of new terminal building
 Put in place facilities and equipment at an existing AAIA terminal building
 Conduct feasibility study and detail design for Pemba Airport
 Speed up the construction of Mpigaduri Port
 Conduct feasibility study for establishment of national carrier.
Identified Project

Entry Points - It must also be noted the new airport terminal is expected to begin
operations on 2016. The project has been identified to improve services in the existing
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terminal. This includes provision of necessary equipments and air conditioning and
departure area.

Accessibility - A study should be commissioned, as soon as possible, to investigate and
make recommendations on the feasibility and viability of setting up an autonomous
statutory agency that would be responsible for the establishment and management of
national carriers for providing direct flights to Zanzibar. The study should address the
need for partnership to potential medium to large-scale entrepreneurs and communities
who wish to invest in and manage the agency. In the meantime and in the limitation of
direct flights from international tourism markets, the government and other sector
stakeholders should build on the success of others in negotiating cost effective
transport/tour packages with competing airlines (both in Zanzibar and overseas) to
achieve transport cost savings that can be passed through to tourists. Furthermore, the
existing local airlines should extend their service within the Sub-Sahara Region. The
extension of airline operation shall for instance help long-range transportation of
passengers within travel routes across Africa, without boredom for travellers or any loss
of time due to long hauling distance.
Strategic objective 3: Strengthening tourists’ security and safety by reducing 90% crime rate by 2017
Issue/Obstacles

Global events in recent years have led to increased concerns from tourists regarding
their own personal safety and security. Currently, Zanzibar suffers from a poor
reputation in some key markets from negative media reporting and overly cautious
overseas government travel advice. The Government needs to ensure that it has a
strong security system/mechanism that is adequately funded to be able to react to all
incidents of crime, particularly armed robberies in hotels, and quickly apprehend any
gangs operating on the island.

The main issue observed by the stakeholders is the delayed response and lack of
adequate resources and facilities. Best practice destinations recognise that in addition to
their Police Force there is a need to introduce specially trained ‘tourist police’ to
increase the level of security for visitors and improve responsiveness and
communications between police officials and visitors. The establishment of a tourist
police unit can focus resources and efforts to provide safety and security for tourists,
deter criminals, but significantly can also provide a level of comfort for visiting tourists; it
would also send a very positive message to the tourist industry.
Outputs

Supportive security facilities in tourism areas available.

Tourism security unit established.
Outcome
Reduced crime rate which in turn improve the value of destination Zanzibar in the world
tourism market
Proposed Actions
For Zanzibar to get a substantial share in the world tourism market, the Government needs
to facilitate growth of the sector by reducing the security risks, particularly in the tourism
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areas. This will only happen if the Government demonstrates long-term commitment to a
well-defined plan of action to combat crime in the tourism areas. The development of a
special tourism security unit provides the opportunity to do this. The government should
facilitate the development of the Unit and those elements of the police force that are most
likely to come into contact with tourists receive appropriate training. In particular this would
include international foreign language speaking classes, and appropriate ways to deal with
tourists. The Government has established a community police network in some areas of
Unguja made up of retired police and servicemen, with the aim of eradicating beach crime
by patrolling the coast by boat. The expansion of this network across areas of Zanzibar
frequented by tourists should be encouraged.
Strategic objective 4: Improve water supply from 60% in 2014 to 85% in 2017
Issues/Obstacles

The supply of water is a serious issue for most tourism sector businesses. Whilst some
are connected to a mains supply, most find this unreliable and therefore buy tanks of
water to be able to operate effectively. Some hotels/resorts have their own boreholes,
from which they draw water, however the sustainability of these sources is unknown,
and thought to be extremely limited. Donor funded water projects have only affected a
small number of tourism businesses on the island.
Output

Water sources will be constructed close to tourism site

Aged infrastructure replaced
Outcomes

Supply of water meet the demand
Proposed Actions
The following action has been suggested to counter the existing water problem in the
tourism zones:

Extension of Nungwi, Matemwe, Wambaa, Ndagoni and Makangale Schemes. This
include Construction of new networks infrastructures as follows:
o Kilindi to Nungwi (5km)
o Matemwe School to Matemwe Kigomani (5km)
o Pwani Mchangani to Kiwengwa (4km)
o Wambaa School to Fundu Lagoon (7km)
o Ndagoni to Misali (3kms)
o Makangale to Mnarani (7km)

Rehabilitation and improvement of supply network in Stone Town.
STRATEGIC OBJECTIVE 5: Improve quality and accessibility of electricity to tourism areas
Issues/Obstacle
Zanzibar suffers from a lack of a continuous and steady power supply. Power blackouts are
common, which is damaging equipment in hotels, restaurants and other establishments. A
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new 100MW cable is being laid between the mainland and Unguja has improve supply,
however and the distribution networks in the tourism zones do not recognize the ring circuit
system, which is leading to extreme fluctuations in electricity
Outputs
 Power interruptions minimized
Outcomes
 Effect of radial feeder reduced
Proposed Actions
It is proposed that ZECO should fast track the installation of radial feeder in the following
following areas:
1. Matemwe - Nungwi
2. Kiwengwa - Pongwe
3. Ukongoroni - Jozani / Ndijani
Strategic objective 6: Introducing proper waste water management system by: (a) establishment of
water treatment plant by 2017; and (b) increase volume of waste water collected from 2912m3/day
to 5000m3 per day by 2017
Issue/obstacle
The proper disposal of rubbish and processing of sewerage are critical to avert
environmental disaster in Zanzibar. Plastic bags litter several areas of the island, and the
water quality on some stretches of the coast where there are sewerage outflows is a cause
for concern.
Outputs

Solid waste properly managed by 2017

Waste Water treated and recycled

Management of solid and liquid waste improved

Willingness of Municipal community to pay for sewer services
Outcomes
 Clean Municipality environment
 Clean environment
 Reduction of sewage blockage
Proposed Actions
The following actions have been suggested in order to solve waste management problem
 Preparing sanitation policy, implementation plan and legislation
 Developing Waste management strategy and implementation plan to be derived
from Environment group
 Formulating solid waste management strategy
 Raising community participation and service delivery
 Engage the private firms for waste collection and transportation to the disposal
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 Establish an integrated solid waste disposal plant
 Preparation of ESIA and detail design for Kisakasaka Slaughter House
4.4.3. Conservation and environmental sustainability
Potential risks to tourists extend beyond crime to include natural disasters, environmental,
and health issues. Uncontrolled conventional tourism poses potential threats to natural
areas around the destination. It can put enormous pressure on an area and lead to impacts
such as soil erosion, increased pollution, discharges into the sea, natural habitat loss,
increased pressure on endangered species and heightened vulnerability to forest fires.
Strategic Objective 1: Enhanced public/community involvement in tourism conservation and
environmental management
Issues/Obstacles
Local communities are key in preserving environment and natural resources. Integrated
coastal zone management (ICZM) has been recognised to be the proper mechanism for
involving local communities in conserving natural resources. Evidence suggests the
environment is better conserved in villages with ICZM committees. To minimise
environmental destruction in potential tourism areas as well as ensuring sustainable
tourism, there is a need to scale up ICZM committees in Zanzibar.
Zanzibar Stone Town is recognised as a World Cultural Heritage Site. Communities in Stone
Town provide less support in maintaining the value of the site due to various factors
including limited understanding and acceptance on cultural heritage sites values. In
maintaining the value of heritage site as a tourist attraction, there is a need to promote
community sensitisation program related to heritage sites.
Outcome

Community compliance toward tourism conservation and environmental management

Positive moral values and sustainable conservation of environment and cultural heritage
Output

Number of ICZM Committees increased

Community understanding and attitude towards tourism conservation and environment
management enhanced
Proposed Action/activities

Scale up and strengthen Integrated Coastal Zone Management (ICZM) Committees

Implement awareness campaign in form of conservation program for Stone Town as a
UNESCO World Heritage Site
Strategic Objective 2: Adaptation Interventions to climate change implemented
Issues/obstacles
Impacts of climate change on tourism in Zanzibar are complex because of the diverse nature
of tourism. There is significant threat from the degradation and loss of marine ecosystem
(corals) for diving/snorkelling related tourism, hotels and infrastructures from coastal
erosion and see level rise. Currently there are insufficient climate change adaptation
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interventions to tackle the climate change impacts. For the purpose of encouraging tourism
development with less climate change impacts, there are potential adaptation options that
will protect shoreline tourism infrastructures, beach erosion and other tourism assets.
Outcome: Tourism related impacts from climate change reduced
Output: Increased adaptation interventions to climate change
Proposed Actions

Develop national climate change adaptation plan

Support implementation of climate change adaptation interventions
Strategic objective 3: Decrease of culture degradation among youth, behavioural imitation, beach
crime and drug abuse in tourist zones
Issue
Drug trafficking has attracted many youth to engage in negative behaviour of using illicit
drugs, thus minimise their potentiality to participate in productive activities such as tourism
development. If the situation is not addressed, it may jeopardise the development of the
tourism industry due to increase of unacceptable behaviour of youths who use illicit drugs.
On the other hand, lack of detoxification and rehabilitation centre for drug users lead to the
spread of drug addicts around tourism areas. Minimum realisation of tourism benefits to
most of the communities coupled with inadequate involvement in tourism development;
reduce community moral and efforts to participate in discouraging events that are
detrimental towards tourism development such as drug use. Establishment of shehia
tourism committees will ensure community involvement in tourism development as well
effort to reduce drug use among communities will encourage youth to positively engage in
development of tourism sector.
Outcome: Community involvement in tourism development improved
Outputs:

Functional Shehia tourism committees introduced and their capacities strengthened

Detoxification and Rehabilitation Centre established
Proposed Actions/Activities

Strengthen community involvement in reducing menace in tourist zones

Establish detoxification and rehabilitation centre
Strategic Objective 4: Employment of locals in tourism sector increased
Issues/Obstacles
One major constraint to the development of tourism in Zanzibar is the quality of tourism
services. Although service personnel are generally friendly, a lack in professional
performance is obvious. Service skills are limited in all areas, crafts, supervisory,
management and guiding. There is a need to review and strengthen the academic capacity
of Tourism College.
Outcome:
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
More local graduates employed
Output:

Competent human resources produced
Action

Strengthen capacity of tourism training at ZIToD

Fast track establishment of School of tourism at SUZA.
Identified Projects

Climate change adaptation intervention project

Construction of detoxification and rehabilitation centre – an ongoing project

Strengthening ICZM.
4.4.4 Tourism Governance
Specific goals: Create a regulatory environment conducive for effective operation of the
sector and forward and backward linkages.
Development of the tourism sector is heavily influenced by the national government. The
government has an important role to play in creating the enabling environment for sectoral
transformation. In order to do this, an institutional framework for tourism is required to
ensure the relevant stakeholders have a good understanding of which institution,
department or entity is responsible for each area and that the stakeholders work together in
growing the local tourism sector. Therefore, appropriate institutional structures need to be
in place and the relationship between them needs to be clearly recognised. It is also
important to recognize that tourism development requires a number of sectoral and crossdepartmental linkages.
Strategic objective 1: Conducive regulatory environment for effective operation of tourism sector
created by 2017
Issues/obstacles

Inadequate performance of the tourism sector relates to various specific laws and
regulations. In Zanzibar such laws and regulations have not been well translated and
implemented. The problem must be addressed if tourism industry is to be encouraged
and businesses are to operate more efficiently. Among the challenges that should be
addressed are the somewhat uncertain organisational structure, inadequate translation
of legislative documents, policies and plans; lack of or outdated Acts, policies and plans;
weak law enforcement; non-compliance on laws and regulations; and inability to secure
sufficient financial resources for its activities.
Outputs

Tourism policy of 2003 reviewed

Implementation plan of the tourism master plan formulated

Relevant Acts, policies and plans, reviewed or formulated

Cultural Heritage Policy formulated
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
Cultural Heritage Management Plan developed

Tourism Regulations formulated

Effective institution for coordination, monitoring and evaluation on tourism business
established

Clear and transparent corporate responsibility
Outcomes

Conducive Policy and Regulatory Environment.

Capacity to combat tourism related crimes improved.

Corporate responsibility policy developed.
Proposed Actions
Given that the existing institutional framework restricts the growth of tourism and to a large
extent does not support the implementation of national plans and policies, the following
interventions is proposed:

Review of tourism policy and implementation plan

Formulation of Cultural Heritage policy.

Develop Cultural Heritage Management Plan.

Formulation of Tourism Regulations.

Tourism Master Plan reviewed.

Develop comprehensive Zanzibar Tourism Communication Strategy and support its
implementation.

Establishment of effective institution for coordination, monitoring and evaluation on
tourism business.

Establish Performance Management and Delivery System for MTDP.

Conduct baseline studies to support M&E Plan of MTDP.
Strategic objective 2: Linkages between tourism sector and community social economic activities
strengthened by 2017
Issue/obstacle
Given that Zanzibar is primarily an agricultural economy, the main scope for developing
increased linkages between tourism other economic sectors lies in the promotion of
increased purchases of local foodstuffs by hotels and restaurants. Principally, hotels and
restaurants, the main purchaser, look for three key attributes when sourcing foodstuffs:
quality, quantity and consistency. They need to be assured that the quality of the products
will remain at a satisfactory level, they need a supplier that can provide the quantities that
are required to satisfy guest demand, and they need consistency of supply. For these
reasons, local producers usually find it difficult to supply to the tourism sector. The objective
should be to maximise benefit from tourism sector. There is considerable demand for local
produce, in particular vegetables, fruit, spices, meat, and seafood. This demand is expected
to increase as tourism grows. Among the issues hindering the linking of tourism with other
economic sectors are lack of finance, technical knowledge, and a lack of clear understanding
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of the needs and opportunities of the market. In addition, there are no facilities for teaching
young Zanzibaris the skills needed to produce and market handicraft items made from
wood, straw, cloth and spices.
Outputs

Local community (registered entrepreneurs) supported to increase production, quality
and marketing of targeted commodities.

Marketing hubs at national level and at lower levels established.

Producers associations established and strengthened.

Corporate Social responsibility policy developed.
Outcomes

Share of local commodities in tourism industry increased

Production and productivity increased.

Guaranteed market access by community.

Well organized producers

Conducive working environment in place.

Security on tourism industry enhanced

Community participation on tourism enhanced.

Clear and transparent compensation scheme.

Clear and transparent corporate responsibility.
Proposed Actions

Support entrepreneurs to increase production, quality and marketing of targeted
commodities

Facilitate selected producer groups to acquire necessary agricultural infrastructures

Prepare extension packages on selected commodities

Distribute extension materials on selected commodities to targeted farmers associations

Establishment of marketing hub at national and local levels

Establishment of producers association and strengthening the existing ones

Formulate Corporate Social Responsibility (CSR) Policy
4.5 Resource Mobilisation
There are various kinds of resources that need to be mobilised for this program to attain the
needed meaningful economic results. These include human resources, financial resources,
physical resources and others such as time and information. Assuming enough qualified
manpower exists, the focus is on mobilisation of financial resources for implementation of
the program. Budget allocation to the tourism sector has over years been on recurrent
expenditure while the share of development expenditure has been going down, affecting
investment and service delivery. The successful implementation of this program, therefore,
will depend not only on the quality and commitment of the tourism stakeholders but also on
the availability and efficient utilisation of the resources.
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The rationale for using themes as the basis for budgeting was to come up with separate
budgets for activities under each theme and enhance easy financing. The cost inherent in
implementing the activities as outlined in this program requires financing resources beyond
the current annual budgetary allocations under the current MTEF. Consequently, this
program emphasises close collaborations with the private sector, development partners and
government. The budgeted cost will be shared between the government, development
partners, private sector and other beneficiaries. The Government will look for innovative
ways of attracting the necessary resource inflows in support of the program
implementation. The Government will also lay emphasis on efficient use of available
financial resources on prioritised activities as detailed in the program. In this regard, the
Government will work methodically in its annual planning to ensure that adequate financial
resources are obtained from the following sources: budgetary allocations; multilateral
development agencies; bilateral sources; and contributions from private sector and NGO
sources.
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Chapter 5: Enabling environment
5.1 Introduction
The effective coordination of implementation of the proposed Multi-sectoral Tourism
Program requires, among other things, an enabling environment in terms of policies, acts
and other regulatory tools. There should be political will and commitment from the
government agencies and other stakeholders.
The success in implementation of the proposed program requires the availability of an
effective coordination mechanism in which the roles and responsibilities of every
stakeholder are clearly identified and demarcated. This section describes these institutional
roles and responsibilities and outlines coordination mechanisms between various
stakeholders in the implementation of the MTDP.
5.2 Coordination related issues
There is a concern that coordination of tourism development activities between and
amongst various stakeholders is generally weak. There are many shortfalls in regulatory
mechanisms for tourism sector in Zanzibar. For instance, there is no Implementation Plan for
the Tourism Policy of 2003 that would translate the policy into a workable form and clearly
indicate how the policy will be implemented, who will do what, in collaboration with whom
at what cost.
Likewise, there are many overlaps and disagreements between un-harmonised acts and
regulations governing the tourism industry to the extent that the implementation of one act
actually impedes the other acts. There are many licensing institutions that collect levies and
taxes from the tourism related activities. The motive to maximise levies and tax collection
from licensing and other services sometimes undermines the performance of other actors in
the sector. For instance, you may find that one authority issues permit to perform loud
music in an area adjacent to the hotels. This brings inconvenience and discomfort to tourists
sleeping in the hotels.
The proposed Multi-sectoral Tourism Development Program will involve establishing and
strengthening collaboration with all those involved in its implementation so as to create
trust and gain commitment and ownership of the program. The Zanzibar Planning
Commission should ensure that MDAs’ annual plans and budget conform to operational
targets and key performance indicators. This can only be achieved if there is an effective
coordination mechanism.
5.3 Overall Program Coordination
The overall project coordination will be vested in the Ministry Responsible for Tourism. The
Zanzibar Commission for Tourism (or another designated coordinator) will coordinate
program activities implemented through various project activities.
There will be a steering committee for each individual project within the program. The
members of these committees will be Directors in Planning, Policy and Research from all
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ministries implementing projects within the program. The project steering committees will
meet quarterly. The project managers will serve as the secretariat to the respective project
steering committees.
The day-to-day implementation of project activities will be overseen by a Project
Management team composed of a Project Managers (team leader), one specialist of the
respective project area, one procurement specialist, one financial management specialist
and one monitoring and evaluation specialists. The team may co-opt other experts from any
ministries/institutions as needs arise. The Project Management Team will facilitate
coordination of activities from respective projects and prepare quarterly and annual
technical progress and financial reports for overall project performance. Monthly
implementation reports (both technical and financial reports) as well monthly cash flow
request will be prepared by the MDAs implementing the program to the National Planning
Commission.
There will be also a Grand Steering Committee (GSC) whose members will be Principal
Secretaries (PSs) from Ministries responsible for Tourism, National Planning, Finance,
Agriculture, (including livestock, fisheries and natural resources), Trade, Marketing,
Infrastructure and representatives from the Zanzibar Association of Tourism Investors,
Zanzibar Association of Tour Operators and from farmers associations. This multi-sectoral
committee will meet twice a year to discuss progress in the implementation of Tourism
Program as a whole and take necessary actions. It will also be responsible for approval of
annual work plans and budgets for every project in the Multi-sectoral Tourism Development
Program.
The CHIEF SECRETARY will be the chairperson of the committee, while the Executive
Secretary from Planning Commission will be the Secretary. The project managers for all
projects in the program will be invited to present progress reports for their respective
projects.
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Chapter 6: Monitoring and Evaluation
6.1 KPIs for Strategic Objectives
Targets have been set for the above objectives and are presented in the tables on the figure
6.1. The targets are based on 2013 baseline data where available. In many instances only
partial or no baseline data is available, and the program suggest the need to establish the
baseline and allow the development of targets/measurable objectives. Targets are set for
2016/17 at annual intervals.
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Figure 6.1: Strategic Objectives, KPIs and Targets
CUM. TARGET VALUES
STRATEGIC OBJECTIVES
Conducive regulatory environment for effective operation of
tourism sector created by 2017
KEY PERFORMANCE INDICATORS (KPIs)
Days to start a business
UNIT OF MEASURE
2014/15
2015/16
2016/17
Days
28
23
15
5
Enforcing Contract procedures
Number
39
39
34
30
Procedures required to start business
Number
10
9
5
4
Procedures required to register business
Number
10
8
5
2
39
35
20
5
Number
48
40
20
8
Cost for registering property (% of property
value)
Percentage
20
18
10
6
Share of local produced food on hotel total
expenditure on food
Percentage
26
31
48
60
Zanzibaris employed in tourism industry
(managerial levels- restaurants)
Percentage
11
22
31
40
Zanzibaris employed in tourism industry
(managerial levels-accommodation)
Percentage
46
51
55
60
Yes/No
0
Yes
Yes
Yes
Percentage
0
100%
100%
100%
Time to register property
Payments required per year
Linkages between tourism sector and community social economic
activities strengthened by 2017
BASELINE
Improved performance of tourism and related sectors through
effective monitoring and evaluation (M&E).
Agency for M&E in operation
Resources for implementation of tourism related interventions
boosted
Proportion of collected funds out of
budgeted
Products and services for tourists are diversified with Zanzibar's
unique selling points realised to their full potential.
Increase in tourist numbers
Number
273,150
288,908
371,798
349,578
Increase in Quality Spending
Exp/tourist/day
US$$362
US$380
US$406
US$435
A holistic brand for Zanzibar - that goes beyond sun, sand and sea
- is created and promoted.
Increase length of stay
Days
6
6.4
6.7
7.1
Strengthening Tourism Security and Safety by reducing crime rate
by 90%
Crime rate involving tourists
Improve water supply from 60% in 2014 to 85% in 2017
Number of hotels/guest houses served
Improve quality and accessibility of electricity to tourism areas
Number of outages
Strengthen waste management disposal of solid and liquid waste
by introducing (a) integrated recycling, composting and land filling
from 800 m3 to 520 m3 by 2017 (b) establishment of waste
water plant treatment by 2017
Meter cubic
Introducing proper waste water management system by (a)
establishment of water treatment plant by 2017 (b) increase
volume of waste water collected from 2912m3per day to 5000m3
per day by 2017
Volume
Improved airport and seaport infrastructures and facilities
capacities so as to enhance tourism and related economic sectors
development by the 2017
Increase number of passengers at airport
Enhanced public/community involvement in tourism conservation
and environmental management
Adaptation Interventions to Climate Change tackled
Decrease of culture degradation among youth, behavioural
imitation, beach crime and drug abuse in tourist zones
Employment of locals in tourism sector increased
Conducive regulatory environment for effective operation of
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Number of
incidents
29
19
9
3
Number
60%
70%
75%
85%
Outages per
month
64
50
30
16
Meter cubic
800 M3
per day
360 M3
(45 %)
416 m3
(52%)
520 m3
(65%)
Meter cubic
2912 m3
2915
m3
5163
m3
5393 m3
Number
865,291
865,291
977,778
1,104,89
0
Passengers
2,085,679
2,085,6
79
85
90
95
100
1
8
14
21
0
1
3
5
0
7
14
21
0
1
1
1
0
40
60
90
28
23
15
5
Increase number of passengers at seaport
Community members participating in
conservation activities
Number
ICZM committees
Number
No. and types of interventions for Climate
change adaptation
Number
No. functional Shehia Tourism Committees
Number
Existence of detoxification and
rehabilitation centre
Number
Proportion of locals employed in tourism
sector
Days to start a business
Percentage
Days
55
tourism sector created by 2017
Enforcing Contract procedures
Number
39
39
34
30
Procedures required to start business
Number
10
9
5
4
Procedures required to register business
Number
10
8
5
2
Days
28
23
15
5
Enforcing Contract procedures
Number
39
39
34
30
Procedures required to start business
Number
10
9
5
4
Procedures required to register business
Number
10
8
5
2
39
35
20
5
Number
48
40
20
8
Cost for registering property (% of property
value)
Percentage
20
18
10
6
Share of local produced food on hotel total
expenditure on food
Percentage
26
31
48
60
Zanzibaris employed in tourism industry
(managerial levels- restaurants)
Percentage
11
22
31
40
Zanzibaris employed in tourism industry
(managerial levels-accommodation)
Percentage
46
51
55
60
Yes/No
0
Yes
Yes
Yes
%
0
100%
100%
100%
Days to start a business
Time to register property
Payments required per year
Linkages between tourism sector and community social economic
activities strengthened by 2017
Improved performance of tourism and related sectors through
effective monitoring and evaluation (M&E).
Agency for M&E in operation
Resources for implementation of tourism related interventions
boosted
Proportion of collected funds out of
budgeted
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The results framework in Annex 1 details the outcomes that are expected under all strategic
objectives, and milestone indicators that can be used to monitor progress towards each of
the objectives. These indicators will be embedded in the M&E systems of the actual and
planned programmes and projects that will implement the MTDP.
6.2 Coordination of Monitoring and Evaluation
The Multisectoral Tourism Development Plan requires action from an enormous range of
individuals and organisations. The activity plans are highly detailed, activities laid out in
detail to the point of individual actions. This level of complexity means that the plan will be
difficult to monitor and evaluate. However, mechanisms will be created to make this more
straightforward and increase the accountability of implementing officers to both the
government and the public.
Monitoring and evaluation of the Multisectoral Tourism Development Programme will
employ and strengthen the existing systems used to monitor and evaluate sector
performance. The MTDP M&E framework has been designed to harmonise and aggregate
M&E data from programmes and project implemented under MTDP. The Delivery Unit will
track performance of all MTDP activities; and feed the aggregated results into the higherlevel MKUZA II M&E systems. Additional resources will be provided to the Zanzibar Planning
Commission M&E team to enable it to handle this extra workload.
As such, the Delivery Unit will harmonise and aggregate M&E data. This will enable MTDP to
maintain its focus and direction, and provide information for addressing constraints and
problems which may arise at the operational level within the various programmes and
projects, whether they are under the MTDP umbrella or not.
Figure 6.2: Reporting Mechanism
6.3 Use of information from Monitoring and Evaluation
The information generated from MTDP M&E will be used to consolidate and guide MTDP
interventions. Government, and other stakeholders, but public and private will work
together to:

Regularly review MTDP to take into account new challenges and opportunities in the
sector. Such reviews will observe issues on outputs, expenditure, major achievements
and constraints.

Enhance accountability and commitment amongst the players.

Review and update the existing M&E mechanisms to accommodate MTDP requirements.

Involve the private sector, non-state actors and communities in M&E of MTDP.

Give training to those filling out M&E templates.
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Chapter 7: Communication Strategies
7.1 Introduction
Tourism development can be a powerful tool for economic growth, poverty reduction, and
for the conservation of natural and cultural resources. While tourism represents an
important development opportunity for many countries and communities, it can also have
negative impacts, such as disrupting social structures, harming the socio-cultural
authenticity of host communities, and threatening natural and cultural heritage.
There are vast numbers of stakeholders, with different and at times opposing interests and
agendas. The multiple stakeholders at both national and local levels must be able to access
the information they need to understand their long-term interests, articulate their opinions,
identify proposals, and network effectively with one another. Tourism development choices
must balance between national and local needs, public and private sector, host
communities, civil society, tourists, and mass media.
Communication has a huge role in supporting sustainable tourism development and
managing its multiple dimensions. Communication can create and facilitate a system that
allows stakeholders to exchange opinions and arrive at consensual solutions. Effective use of
communication tools can also link products to markets, and can contribute to visitors’ safe
and positive experiences.
A comprehensive communication strategy, which should identify how information,
awareness creation, advocacy, network building, conflict mitigation, and communication
platforms will be supported, is essential for any successful sustainable tourism development
activity.
7.2 The Assignment
The objective of the communication strategy to effectively disseminate the findings and
analysis of the Multi-sectoral Tourism Development Programme (MTDP) for the Zanzibar
Development Vision 2020, including but not limited to the following:
1. Awareness rising of MTDP
2. Maintenance of the MTDP’s objectives
Additionally, the communication strategy should focus on:
(a) Deploying the optimal communication strategies to achieve the dissemination objectives
and ensure relevant MTDP findings reach the targeted audiences.
(b) Messages to be professionally designed for and appealing to their respective audiences.
This will be done through a four-phase dissemination process:
1. Immediate phase: Syndication with the ministers and the general public (open day)
following the official launch of Results for Prosperity on 22 February 2014
2. Intermediate phase: dissemination at the executive level with Cabinet Secretariat
(IMTC), Cabinet and House of Representatives
3. Long-term phase: dissemination for three years after the launch
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4. Continuing dissemination.
7.3 Tasks To Be Performed
The communications unit under Ministry of Information, Culture, Tourism and Sports
(MICTS) will take the lead putting in place dissemination arrangements between respective
ministries/institutions and R4P Delivery Unit. The aim of these arrangements will be to
streamline MTDP dissemination efforts utilising group approaches, mass and social media,
TV and radio stations, as well as outdoor adverts. In addition, the communications unit must
create knowledge and understanding as well as maintaining the objective of the MTDP
across all stakeholder levels.
7.3.1 Media And Content To Be Used In The Communication Strategies
1. Branding materials: the creation of MTDP identity; branding kit for outdoor and
online (banners, stickers, flyers, leaflets, online platform)
2. Design website and content of the MTDP
3. Design of MTDP dissemination tools and instruments on social media platforms
such as Google+, Facebook, Twitter, YouTube, professional networks and others
4. Design of MTDP TV and radio production series or one-off media events using
MTDP resources (through interviews/special programs/documentaries, press
release, featured articles)
7.3.2 Communication Approaches
1. Decision Makers at national level:
 Seminars – to be conducted for Ministers to ensure their buy-in
 Workshops – an approach to be utilised to involve the executive level of the decision
makers such as Principle Secretaries, Deputy Principal Secretaries, Commissioners and
Directors.
 Briefings – to be introduced as a form of advocacy in policies, legal/institutional
framework.
2. Sectors/Institutions:
 Forums – to ensure all relevant stakeholders are involved in decision-making, including
investors, business owners, students, hoteliers, tour guides, NGOs, specific sectors etc.
3. Sub-National Institutions/Authorities:
 Workshops - Municipal councils and District councils to ensure ownership and early buyin
4.Grassroots Level:
 Mass media – utilising various media channels to raise awareness
 Folk groups – communicating to the local government to reach the grassroots levels
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Chapter 8: Risk and sustainability measures
This chapter identifies the primary risks to the Multisectoral Tourism Development
Programme and suggests ways to increase the sustainability and resilience of the
programme. It considers risks associated with the environment, climate change, financing,
life of the projects after initial inception, human capacity and ownership.
Figure 8.1 Possible Risks in Tourism Projects
Risk
Environmental
Risk
Potential Impact
Pollution
Climate change
risk
Increasing concentration of
CO2 in atmosphere with
subsequent impacts to climate
and weather patterns
Financial risk
Discontinuity of funding
Government experiencing
financial problems
Unforeseen problems during
project execution
Getting competent
management and enough
funding
Unpredictability and volatility
in the political environment
Political instability-terrorism,
riots, coups, civil war,
insurrection etc.
Sharing of the jurisdiction of
the project

Secure required funding before
the programme starts

Make available all inputs and
critical success factors
Recruit managers and other staff
based on skills and experience
Lack of competent work force
with skills and knowhow

Life span
Security risk
Ownership risk
Human
capacity risk
Mitigation/Adaptation
 Following of environmental
procedures
 Monitoring of environmental risks
 Establish risk management plans
 Improvement of air transport
management systems and
processes
 Climate Change Policy Framework
 Strengthening of institutional and
legal frameworks
 Monitoring, mitigation and
adaption packages





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Measures within the MTDP to
improve security conditions
Public communications strategy
Adopting ownership by agency ministry, departmental or
community levels
Make training needs assessment
of tourist sector
Establishment of new
programmes to cater for the
industry
61
8.1 Environment
Tourism by its very nature depends on natural resources as both an attraction and as an
enabling environment. As such it can affect tourism businesses directly and indirectly.
Environment risks are a part of many tourism and related projects, particularly construction,
as materials and chemicals that are used during the construction and operation periods can
pollute the surrounding area. This can lead to fines for company that is involved in the
construction, which can be incredibly expensive and at times cause the entire project to shut
down. Properly following environmental procedures will help protect the project from these
risks. They can also be prevented with good management. A thorough environmental impact
assessment can avoid most problems. Careful selection of the contractor with necessary
certification and experience can do the same.
8.2 Climate Change
The current increase of the global temperatures triggers most of the impacts of the climate
change to the tourism industry. Just a 2°C temperature rise would have far-reaching
consequences impact for the industry such as:

Rise of sea levels - Low-lying islands will be submerged and tourism development in
these and coastal areas is under threat.

Seawater intrusion - the rise of sea levels in turn causes intrusion, making water along
the coast very saline and unsuitable for domestic consumption. The Zanzibar First
President’s Office has already identified more than 76 areas experiencing this problem.

Desertification and the scarcity of water – this makes regions less hospitable for both
local communities and tourists.

Deforestation and the deterioration of biodiversity – affecting both the ecosystem and
directly reducing the global carbon sink, while also discouraging demand for such
destinations.

Bleaching of the coral reef: Coral reefs are major attractions in Zanzibar, not only
attracting ‘sea lovers’ but also importantly being home to many creatures. However, the
increasing of temperatures and seawater pollution destroys the coral.
It is therefore of utmost importance that tourism programmes adopt adaption and
mitigation measure as much as possible and in particular address the following areas:

Put in place a Climate Change Policy Framework

Abiding the international procedures and standards and industrial initiatives

Reviewing of the transport taxes and charges

Strengthening of an institutional and legal frameworks

Publishing and disseminating educational material to the general public who are most
vulnerable.
8.3 Financial risk
Tourism projects and programmes usually take an extended amount of time to complete so
there is always risk of the economy going down and funding for the project falling through
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before it is completed. Unnecessary expenditures and overages should also be avoided over
the course of the project, in case no more money can be given to complete it.
8.4 Life span period
In the ordinary situation life span period of the project or programme involves a logical
arrangement of activities to accomplish the project’s goals or objectives in a certain period
which in consideration of the scope or complexity goes through a series of stages, namely
initial, planning, execution and monitoring. The initial stage outlines and makes available the
inputs and critical success factors, followed by a planning stage, breaking down the project
into smaller parts whereas the third stage the project plan is actually executed, and lastly it
comes to its conclusion.
At the initial and execution stages projects may find a safe haven by having the financial
backing of donors but problems may rise when this financial source is exhausted. It is
therefore of extreme importance to ensure that all the projects and programmes exist
beyond the initial financial backing.
One thing that can help the projects and programmes survive is the careful appointment of
its office bearers. It should also include a risk analysis and a definition of criteria for the
successful completion of each deliverable. Frequent reporting to stakeholders may also help
the efficiency and accountability of the programme. As the executing stage proceeds the
programme must be well monitored and evaluated so that adjustments can be made.
8.5 Human capacity risk
The tourism industry needs skilled human resources to attain its goal of high quality and
spending tourism. Currently this type of human resource is not in place and urgent measures
are to be taken for the objective to be realised. Training opportunities are limited in terms of
number, levels and diversity of the programmes. Unless this resolved the industry is at risk
as people from outside to grasp an employment opportunity.
Local residents have already shown some grievances arguing that they are employed in
cheap and lower cadres and not in the managerial positions.
8.6 Security Risk
Some may consider the security risk of the host country as one of the most important risks.
The concern is due to the belief that unpredictability and volatility in the security
environment of the host increases the perceived risk and uncertainty experienced of the
programme. In turn, this disinclines external investors from entering with heavy resource
commitments.
These risks or constraints fall into three main categories namely "transfer risk", concerning
risk to capital payments; "operational risk", with threats over local source or content; and
"ownership control risk", highlighting possibilities of expropriation or confiscation. Others
are the political instability-terrorism, riots, coups, civil war, and insurrection. The last group
mainly affect the safety and security of the tourists and their properties as the tourists are
very sensitive to them. If security problems worsen, despite the projects aimed at improving
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the situation within the MTDP, tourists will be put off coming to Zanzibar and targets will not
be met.
8.7 Ownership Risk
The Zanzibar Government has a number of project ownership options for its choice where
each one has its own advantages and disadvantages from the traditional state ownership
(public) common ownership to the collective ownership.
Where state ownership (public) assets are owned by the state or certain state agency and
has jurisdiction over its use, in common ownership assets and property are held in common
by all members of society. In collective ownership however, assets and property belong to a
collective body of people who control their use, collect and control their operation.
As all projects are intended to create a conducive tourism environment and not business for
its excellence the Government may adopt ownership by its agency be it the ministerial,
departmental or community levels.
8.8 Sustainability
Sustainable tourism is a form of tourism that involves being conscious of the potential
economic, environmental, and cultural impacts of tourism. It is now the mostly widely
accepted form of tourism because of its attention to address the livelihoods of the
community, including their culture, environment and sharing of the benefits.
In responding to these demands, tour operators now carbon offset to compensate for the
energy used in travel, for example. These companies also invest in the local economy, and
encourage their patrons to do the same, promoting visits to local businesses, native
craftspeople and so forth, to ensure that more funds reach the local community. They
organise briefings before trips to address such issues as religious beliefs, cultural traditions,
and other issues that tourists may encounter with aim allowing people to witness and
participate in traditional cultures without altering them.
It also involves an active contribution to the community. Tourists might volunteer with local
organisations and help provide health care, housing, and other services to needy people in
the community. Others might participate in environmental cleanups or donate to nonprofits
and charities that serve the area.
Further, it is supporting the integrity of local cultures by favouring businesses which
conserve cultural heritage and traditional values, supporting local economies by purchasing
local goods and participating with small, local businesses, contributing to intercultural
understanding and tolerance.
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