and there are many other forms of economic and social development besides tourism that are simultaneously occurring in Indonesia. All of these development activities in different economic sectors are collectively having a profound impact on the natural and man-made environment, as well as on culture and heritage. The modernization and development affecting industry, housing, transportation, agriculture, education, urbanization, and mass media have had, and will continue to have, a profound influence on Indonesian society. It can readily be understood from a macro-perspective that tourism is just one strand in the overall economic and social development taking place in our country.
If tourism in Indonesia were to disappear tomorrow, would that mean there would be no further impacts on our natural and cultural heritage? Clearly not. Therefore, when we discuss these issues we should be aware that all these other developmental influences-and not just tourism-should also be held accountable for their impacts on our society.
We need also to be aware that in countries undergoing profound change, heritage is an intrinsic part of daily life and therefore any development-touristic or otherwise-has to be sensitive to this. For instance, in Western countries, man-made heritage is usually well-defined in terms of space and residential area. However, in developing countries, man-made heritage is often part and parcel of villages and local communities. Therefore, in developing a given site for domestic or international tourism purposes, there are many social consequences to consider beyond those, say, of traffic management issues.
When tourists visit the Acropolis in Athens or the Colosseum in Rome for example, there is a clear distinction between the heritage site itself and the society in which the site is situated. However, when the same tourists visit Bali and see offerings being made at temples, this is part of the heritage they have come to see. However, for the Balinese, this is simply part of their daily life and very much in the present and not something from the distant past performed for visitors. In effect, the whole island is a living cultural heritage monument.
?. The Role of Government
As we see it, government has a vital role in Indonesia as a mediating force in tourism and heritage management on behalf of the nation as a whole. It has to take a broader, long-term view and to balance the interests of the various stake-holders concerned. As we are aware, tourism is a diffuse and complex activity, consisting of a wide range of sectors (accommodation, attractions, transportation, infrastructure, supporting services etc.) which might be developed in a variety of contexts by a broad spectrum of local, national and international developers, each having different aspirations and capabilities.
It therefore becomes evident that planning is essential, if we define planning as an activity that is concerned with anticipating and regulating change in a system to promote orderly development so as to increase the social, economic and environmental benefits or the development process. It is clear tourism is a system whose characteristics are such that it may benefit substantially from at least some measure of planning. This by necessity involves many interlinking and complimentary aspects involving compensation, relocation, legislation, regulation, reconstruction and so forth-all activities best suited for the government to deal with.
The general process of government planning for tourism development and heritage conservation may be briefly summarized as involving the following steps:
1. Policy Setting
2. Designation and Protection
3. Restoration and Development
4. Monitoring and Regulation Enforcement
These phases are not mutually exclusive and some overlap of activities does occur, especially given the length of time often required for the third phase and the ongoing nature of the fourth.
Market forces, while essential for a healthy and flourishing tourist industry, have often proved inadequate in allocating sufficient resources to maintain and manage important physical and cultural landscapes or have caused damage, pollution or other unacceptable impacts. As the World Tourism Organization has noted, the market tends to take a short-term approach, whereas effects upon the environment (physical, cultural, economic and social) generally occur over a long period of time.
While welcoming the benefits of tourism in terms of job creation and revenue generation, it is fundamentally important in our view that short-term commercial interests do not dominate and that a long-term view of tourism and heritage management is adopted.
In assessing the relationship between development and conservation, these are four principles we can use as a conceptual framework as we move through all the stages from planning to monitoring and regulation enforcement:
･ Acceptability
Is the proposed development acceptable for the nation as a whole? Does it fit with our long-term economic and social goals? Does it respect local community concerns and ensure high environmental and cultural standards will be maintained?
･ Profitability
Is the planned development worthwhile? It should generate income, jobs and revenue to make it worth the investment by public and private authorities. Will there be strong indirect gains in regional development? For example, if a new road or bridge is built to provide access to the proposed new tourism heritage site, it can benefit trade and communication links and stimulate further development in the region as a whole. It is therefore necessary to view the
