Regional autonomy may lead tourist industry into the twilight
Regional autonomy may lead tourist industry into the twilight
By I Gde Pitana
DENPASAR, Bali (JP): Tourism has been inseparable from the
life of most Balinese and has become a revenue generator in the
economic development of the island.
In l998 alone, tourism absorbed around 52 percent of the total
workforce in the island.
Despite its success story, tourism has actually created a
number of problems of its own .The centralized tourism policy,
which allows officials in Jakarta to make all the decisions
concerning tourism in Bali, is no longer appropriate.
That's why Bali wholeheartedly welcomed the implementation of
the law on regional autonomy.
The policy is expected to speed up the development of the
tourist industry as local officials, who supposedly understand
the local problems better, will make most of the important
decisions.
In reality, the policy imposed under Law No. 22/1999,
effective since January 2001, is not all positive.
When the regional autonomy issue was being debated, local
scholars and related parties carried out a series of discussions
to provide the provincial government with the necessary input.
The discussions centered more on the potential impact of
regional autonomy on the local culture, economy and environment.
There was a suggestion that Bali should implement regional
autonomy only at the provincial level. The arguments were based
on several facts.
First, Bali is just a small island with limited natural
resources. If regional autonomy is implemented at the regional
level, it may be vulnerable to irregularities in various
development projects. Each regency would propose its own
development plan. The worst thing that can happen is that the
regional administrations fail to have a comprehensive development
plan and succumbs to the demands of investors.
Second, the new paradigm of regional autonomy should emphasize
more on public service improvement than increasing regional
revenue. This is because there is a fear that regional
authorities, instead of improving public service, may focus on
generating as much as revenue as possible from development
projects.
Since tourism is the island's economic backbone, each regency
might push itself to transform its territory into a glittering
tourist destination. The regional authorities might build many
hotels and tourist facilities to increase their profits and tax
revenue without considering the sociocultural and environmental
impact.
If this happens, Bali will be seriously threatened as it may
not be able to have a sustainable growth.
Third, each regency may impose various taxes and fees on
hotels, restaurants and tourists. One such example is the fee
visitors pay when they come to view the Batur mountains and lakes
in Bangli regency.
It is feared that other regencies will follow suit. Tabanan
regency, for instance, may impose a fee on those visiting the
Beratan lake in Bedugul. The same thing might happen in Buleleng
regency, where the Buyan lake is located. Even people passing the
terraced rice fields in Ubud, Gianyar and the fertile salak
(fruit a with snake skin-like outer covering) plantations in
Karang Asem, East Bali may be charged.
It may also come to the mind of regional officials to build a
bus terminal in their area to earn higher revenues. This may
create traffic chaos.
Fourth, regional autonomy could heighten interregional
conflicts concerning the preservation and maintenance of natural
resources such as water, forests and rivers in bordering areas.
Fifth, the social and economic gap between the rich and poor
regencies will likely widen. People from poorer regencies may
become frustrated when they see regencies such as Badung and
Denpasar enjoying greater financial benefits from tourism.
As a result of the unequal financial distribution, poorer
regencies may resort to extreme measures such as closing their
borders or imposing high entrance fees on those entering their
territories.
Unequal regional revenues (PAD) of the regencies are vividly
illustrated in the following data: In 2000, Badung regency with
only 326,771 population received about Rp 217.5 billion in
revenue compared to Buleleng (565,162 population) with only Rp
6.41 billion. One of the poorer regencies, Bangli, received only
Rp.2.17 billion or 10 percent of Badinage's revenue.
Historically, the old Bali during the Gelgel Kingdom, between
the 13th and 14th century, was far more prosperous than
contemporary Bali. When the Dutch invaded the island, the kingdom
was divided into smaller royal houses.
Each kingdom then had its own territory and authority. The
division of Gelgel alienated the kingdoms and the once united
royal family became enemies.
Reality
Nevertheless, like it or not, Bali must accept the present
concept of regional autonomy. The province is now witnessing what
was forecast above. There is a possibility that each of the eight
regencies in Bali will transform itself into a "small kingdom".
They will regulate their own taxation and implement their own
development plans. Unfortunately, not all the regencies have a
detailed master plan.
Investors are already being invited to develop the respective
areas, ignoring the social and environmental impact.
If this continues, it will ruin the environment, deplete the
natural resources as well as create social and cultural problems.
A poor development plan can cause serious problems to the
locals, in particular, and the agrarian society of Bali, in
general.
To attract more investors, the regional authorities may
sacrifice the traditional land use system, for example
sacrificing fertile rice fields to make way for various
development projects. This can lead to a marginalization of the
farmers and local residents.
The authorities may not realize that they are changing the
social and cultural systems, which support the island's agrarian
life.
The existence of Subak (an organization of farmers that own
adjacent rice fields), for instance, will certainly be threatened
by uncontrolled development projects.
Subak, which decides on all matters concerning irrigation,
rice growing and ceremonies, has long been recognized as a
significant force in safeguarding Bali's Hindu religion and
culture.
In the Balinese context, the use of land is always associated
with nonphysical and physical elements. It embodies relations
between man and nature. The land use in Bali is closely related
to Subak, Desa Adat (social and religious traditions of villages)
and pemaksan (an organization or individual responsible for the
maintenance of religious properties).
Every rice field in Bali belongs to a Subak society. Each
Subak has its own pura (temple), which is supported by its
members. If a rich field is transformed into a tourist or
business center, who will take care of the temple?
Transfer of property and transforming the land will upset the
people's relationship with the supernatural, and their religious
beliefs and values.
The Balinese people deeply believe in three elements, locally
known as Tri Hita Karana, which gives them genuine happiness.
These elements are the relations between man, man and nature, and
man and his Creator.
Poorly managed development projects will disturb the social
and cultural lives of the Balinese people, who actually have the
cultural capital to boost tourism.
Bali has been trying to develop a cultural tourist industry
with its local culture as its primary asset.
Literally, the Balinese culture can be defined as one that
embodies both religion (Hindu) and tradition.
Any development project must support the island's tourism and
at the same time preserve the culture. The tourist industry must
promote the local culture and vice versa.
As Bali's tourist industry relies on its cultural capital, any
disturbance to the existing culture will definitely affect the
industry.
Experts have raised concerns that the implementation of
regional autonomy may have negative repercussions on both the
local culture and the island's tourist industry.
Bali's image as a paradise island can quickly change into one
that is expensive, uncomfortable and environment unfriendly.
In the early period of regional autonomy, Bali may experience
rapid development in tourism, particularly in terms of physical
development. But, in the long run, there may be a stagnant period
and this can lead to its destruction. According to the Butler
theory (l980), when tourism declines, it will be difficult to
rejuvenate it.
The implementation of regional autonomy, which allows
uncontrolled development in the regencies, threatens Bali's
entire cultural and tourism potentials.
If the present trend in development continues, Bali may soon
become overburdened and worn out, and its tourist industry be
prepared to enter its twilight.
The writer is a researcher at Udayana University's Center for
Cultural and Tourism Studies.