The draft National Tourism Policy

August 2000

1. Background

1.1 In 1996, His Majesty’s Government, created the Ministry of Tourism, Environment and Communications (MTEC) to better focus national attention on tourism development and management of the country’s environment. The vision behind this development was to recognise the importance of the tourism industry as a leading contributor to the national economy and to support its potential to promote social and environmentally sustainable development in Swaziland.

1.2 The major attractions of the Kingdom of Swaziland are the unique culture of its people and the scenic beauty of the country. The fact that Swaziland has no single globally identifiable feature, on which to hinge its promotion on the international tourism market, does not preclude the potential for the national tourism product to emerge as an international attraction, alongside other regional attractions. To realise success, Swaziland needs to follow a co-ordinated tourism development programme guided by an over-riding national policy.

1.3 Tourism is an industry with the potential to spread economic, social and environmental benefits across a wide spectrum of society. Its success in achieving this points to the need for establishing a broader industry base. Swaziland’s tourism strengths and opportunities also point to a focus on national attractiveness, rather than the attractiveness of a single feature, thereby necessitating a clear vision, stated objectives and a collaborative approach involving all stakeholders.

1.4 Changes in the regional political situation have redefined market opportunities substantially for the Kingdom of Swaziland. Although relatively recent, these changes require a strategic response from the Swaziland tourism industry. The aim of this policy is to provide a strategic framework for the revitalisation of the tourism sector and a reorientation towards new markets and opportunities.

1.5 Swaziland is strategically placed to gain significant advantage from various regional tourism initiatives, which are expected to result in a major boost to the tourism industry in Southern Africa. An integrated planning approach and constructive collaboration between the private sector and the Government is required to maximise these potential benefits.

1.6 In order to provide leadership and a focus for coordination to promote tourism in Swaziland it has been decided to establish the Swaziland Tourism Authority (STA), in which the private sector will play a leading role.

2. The Vision

The Vision is to develop the tourism sector as a national priority in a sustainable and acceptable manner, taking full advantage of regional and international trends and developments so that it will significantly contribute to the continued improvement of quality of life in the Kingdom of Swaziland whilst promoting the country’s cultural and natural heritage.

3. Guiding Principles

Realising that tourism is a priority sector which has the potential to truly underpin the National Development Strategy (NDS) and sustainable long-term economic development in Swaziland, key principles are required to guide responsible development of the tourism sector for the benefit of all.

The six key principles are:

• Tourism development will be private sector driven with the role of Government being to create an attractive investment environment for the tourism industry to flourish. Support will be given to existing best practice investment. The Government will aim to foster a climate of competitiveness and innovation in the tourism industry, whilst promoting collaboration in the overall management and marketing of the sector.
• Tourism development will be managed to ensure sustainability and the conservation of the country’s environment and natural resources . The Government will support and promote the protection of natural attractions and biodiversity and the strengthening and expansion of conservation areas, through existing and proposed legislation and a variety of sectoral policies, such as the environment and forestry policies.
• Tourism development will promote active Swazi participation in the sector as entrepreneurs and suppliers of goods and services and as customers of tourism. Community-based tourism will be encouraged. Whilst promoting Swazi culture and participation, care will be taken to avoid or mitigate negative impacts.
• Tourism development will aim to maximise the opportunities afforded by strategic regional opportunities such as the Maputo Development Corridor [another link] and the Lubombo Spatial Development Initiative, Lubombo Trans-frontier Conservation Area and the Bio-diversity and Tourism Corridors that aim to link these initiatives.
• Swaziland will build on its existing strengths to develop tourism by promoting a clean, healthy and safe environment along with friendly and efficient services. To achieve this linkages will be developed with other sectors, which impact on tourism, in particular the services sectors.
• The Swaziland tourism industry will aim to develop a marketable identity focusing on selected niches and products in order to attract visitors to the country and to differentiate itself, where necessary, from its neighbours.

4. General Objectives

Given the above key principles, the broad long-term objectives of tourism development in Swaziland require identification and prominence in order to direct the resources and commitment necessary to stimulate the facilitation of short-term goals. The broad objectives for the development of the sector are as follows:

1. To establish tourism as a national priority sector for the future development of the country and to achieve cooperation within the public sector and with the various sector stakeholders (private sector, communities and civil society) to facilitate appropriate investment and promote tourism. This should lead to a significant and sustainable increase in the contribution of tourism to the national economy in terms of increased employment and income, de-centralised investment and foreign exchange income.
2. To develop an effective marketing strategy linked with regional initiatives through a collaborative process to project a positive identity for Swaziland to the international tourism markets as a unique and desirable country to visit.
3. To strengthen the quality and attractiveness of the tourism experience in Swaziland including improvements to health, safety, information, cleanliness, and the conservation the environment and scenic beauty of the country.
4. To identify and promote new opportunities for the future development of the tourism product in Swaziland through market research and an analysis of the country’s competitive advantages.
5. To strengthen the cultural aspects of the tourism product in Swaziland and to actively promote Swazi participation, including community-based tourism, in the sector in order to spread the benefits more widely amongst the local population. In this process, care will be taken to avoid or mitigate negative impacts on the local culture and environment.
6. To deliver high quality service at all levels in the tourism industry through the establishment of minimum standards and participatory regulation, and by supporting training and human resource development.
7. To make the tourism industry in Swaziland a leader in responsible environmental practices, through adherence to environmental legislation and to encourage the conservation and sustainable usage of natural resources. In addition, to promote recognition of the inter-dependent relationship between environmental conservation (including the development of wildlife and biodiversity areas) and tourism and contribute to any strategies in this regard.
8. To participate actively and take full advantage of strategic regional initiatives, such as the Lubombo Spatial Development Initiative, the Bio-diversity and Tourism Corridors and the Maputo Development Corridor.
9. To identify and strengthen existing best practices in tourism development. These best practices will be used to formulate guidelines and standards for appropriate tourism development as well as criteria for investment incentives. Country experience in tourism will be analysed and lessons learned will be incorporated into future policy.

5. Tourism Strategy

The overall strategy is to develop Swaziland as a distinctive destination, fully capitalising on its natural resources (environment, history, culture and people) and its favourable location as well as regional initiatives, to produce new, upgraded and different products, services and experiences that will exceed the expectations of the new and more discerning traveller. The strategies to be followed are presented under the related objective. Strategies, which relate to different objectives, have not been repeated.

5.1 To establish tourism as a national priority sector for the future development of the country and to achieve cooperation within the public sector and the various sector stakeholders (private sector, communities and civil society) to attract and facilitate investment and promote tourism.

The STA will provide leadership for the effective and efficient implementation of the National Tourism Policy.

The STA will have private sector members on its board and will be responsible for promoting public and private sector collaboration to achieve the objectives of the tourism policy.

The STA will aim to become self-financing for its core activities through the introduction of levies on tourism products and services and other charges.

The STA will be responsible for:

• promoting awareness of the benefits of tourism;
• supporting improvements to the tourism experience in Swaziland in collaboration with the various stakeholders;
• carrying out market research and implementing a market strategy for the country in collaboration with industry stakeholders;
• preparing integrated plans for the future development of the tourism sector through a participatory process;
• promoting and facilitating the development of tourism infrastructure, facilities and services in Swaziland;
• promoting community-based tourism and local participation in the sector, including linkages for small entrepreneurs with larger business;
• in collaboration with SIPA facilitating the development of a conducive environment for expansion of existing and new local and foreign investment in tourism;
• establishing minimum standards for the tourism service industry and introducing participatory monitoring and regulation;
• advising on policy formulation directly or indirectly involving tourism; and,
• coordinating the gathering and dissemination of appropriate information and statistics on the performance of the tourism sector to direct future policy and marketing strategies

The STA will be actively involved in regional initiatives to promote tourism.

The Government will establish an inter-Ministerial Committee for tourism sector development, chaired by the Ministry of Tourism, Environment and Communications, involving related Departments and Public Enterprises, which will aim to establish tourism as a national priority and coordinate Government actions to create an enabling environment for sustainable growth in the sector.

The STA will act as secretariat to this committee. The responsibilities of the committee, which will work through the relevant line-Ministries, will include:

• Promoting awareness of the country’s tourism policy amongst members of Parliament, the traditional authorities, throughout the Government and public enterprise and service agencies and to the general public through schools, local Government and the mass media
• Instigating studies and activities, which will promote recognition of the contribution of tourism to the economy and the sustainable future development of the country
• Identifying and implementing incentives for investors interested in community-involved and environmentally beneficial tourism development
• Improving the arrival experience for tourists at border posts and the airport including better information and signage, longer opening hours and more friendly and efficient services (e.g. visa requirements and issuing procedures)
• Provision of improved infrastructure for tourism access and development on the basis of integrated area plans whilst minimising negative and enhancing positive environmental impacts
• Supporting and implementing the necessary legislation and actions for conservation, protection and sustainable use of the country’s natural environmental assets and the development of wildlife parks
• Taking action to limit the spread of crime, in particular tourist-related crime
• Facilitating donor support for tourism-related development programmes, particularly in the area of human resource development
• Ensuring full Government support for regional tourism initiatives
• Regional liaison in relation to tourism issues and priorities

5.2 To develop an effective marketing strategy, linked with regional initiatives, so as to project a positive identity for Swaziland to the international and regional tourism markets as a unique and desirable country to visit.

Developing a marketing strategy will provide the logic that will guide and direct marketing efforts by STA thereby bringing about increased visitor numbers and visitor’s spending. The goal will be to create a unique image for Swaziland as a distinctive, fascinating, peaceful, safe and desirable country to visit and re-visit, both as a destination in its own right and in combination with visits to neighbouring destinations, with a range of attractions available within a compact area. The image will build on the aura, significance and history of the Monarchy in Swaziland; the status of Swaziland as an independent and stable African country; and, the overall physical landscape of the country and attractiveness of its natural environment.

The marketing strategy will aim to promote Swaziland differently according to the requirements of the various markets; to develop strong product lines to meet customer needs; to take full advantage of regional opportunities like the Regional Tourism Organisation of Southern Africa (RETOSA); and to fully integrate into the international tourism industry (links with regional and international brands, tour operators and other tourism-related agencies and contacts).

For international tourism, Swaziland will fully capitalise on its role as a place to be visited mainly as part of a multi-destination trip to Southern Africa and/or the Indian Ocean, while making every effort to increase the length of time spent by such tourists in Swaziland. At the same time, every effort will also be made to promote Swaziland to international tourists as a worthwhile destination in its own right (especially for special interest, repeat visitors and independent travellers). In the international market, Swaziland will be positioned as a ‘must-see’ destination on account of its natural beauty, fascinating culture and diverse range of other attractions.

For the regional market, Swaziland needs to be re-positioned as a stand-alone destination both for week-end and longer breaks, with a clean, safe, healthy environment, offering a range of accommodation, sporting, hiking and other outdoor attractions for family and other affinity groups. Critical to the success of this approach will be, firstly, an inventory of existing sites of historic, cultural and natural interest and, secondly, the preparation of plans for their upgrading and promotion, together with the identification and development of new diversified eco-tourism attractions.

The marketing plan will be developed in full knowledge of the products in Swaziland and the markets that Swaziland is targeting, but critically, the plan must involve the inputs of all stakeholders. The plan will include: marketing activities (publications/web site); promotional activities (road shows and trade fairs); communications and public relations strategies (targeting travel agents, tour guides and operators); distribution strategies; awareness campaigns for the local market as well as the production and utilisation of marketing tools. The plan will be developed in detail with time frame, budgets and responsibility for implementation clearly specified. The exact mix of these activities will need to be determined by the budgets as well as the specific markets targeted and the overall objectives agreed to by stakeholders.

5.3 To strengthen the quality and attractiveness of the tourism experience in Swaziland including improvements to health, safety, cleanliness, information, and the conservation of the environment and scenic beauty of the country.

In order to achieve this objective there will need to be broad consensus that the development of the tourism sector represents a strategic opportunity for environmentally sustainable future development in Swaziland. The STA in collaboration with stakeholders and partners in Government will work to achieve a consensus on the importance of improving the tourism experience for visitors to Swaziland. This will be carried out through training in the public sector, public awareness campaigns and use of the mass media, which will highlight the benefits of tourism and identify actions required to improve the tourism experience. These are expected to include:

• Efforts to minimise the incidence of crime with a particular focus on criminal activity targeting tourists. This will require monitoring to identify problem areas and close collaboration with the police for visible policing, the provision of adequate resources, and rapid prosecution of tourist-related crime. Preventative measures, including the involvement of local communities and spreading the benefits of tourism, will be actively promoted.
• The launching of a national campaign to keep Swaziland beautiful. This will encourage the population to feel proud of their natural heritage and the scenic beauty of the country and will aim to involve the whole country in preventing damage to the environment, in particular changing attitudes towards littering and tolerance for the same. All stakeholders will have to contribute to make this campaign a success.
• Support for programmes and improved information aiming to limit health and safety risks in the country including the elimination of malaria, control of the impacts and spread of HIV/AIDS and improvements to road safety. This will require the involvement of the relevant line Ministries and the support of other stakeholders.
• A planned programme to catalogue and upgrade the natural, cultural and historical attractions throughout the country. The programme will include the upgrading of visitor facilities, improved information and signage, and the introduction of conservation measures for the natural environment where appropriate.
• Actions to maintain Swaziland’s reputation as a country committed to meeting its obligations under national, regional and international environmental agreements and legislation.

5.4 To identify and promote new opportunities for the future development of the tourism product in Swaziland through regular market research and an analysis of the country’s competitive advantages.

Swaziland will constantly aim to improve the tourism product it offers as well as build new products and services to target the new and more demanding travellers.

The first step to achieve this will be to carry out market research at regular intervals that will provide information on: existing and potential tourist visitors and where they are coming from; customers views on the tourism product and potential improvements; areas of demand with future growth potential for Swaziland; competitors for similar markets and their activities; and, the markets and market segments which could be attracted to Swaziland. This analysis will be done geographically as well as by product niches. The STA will be responsible for collecting, analysing and disseminating this information to stakeholders. The marketing strategy will be adapted accordingly.

Secondly, the STA will develop and maintain a detailed tourism product inventory of Swaziland to establish a database of information on existing attractions, including sites of cultural and historic interest (available as a publication and via the web). This information together with the market research will be used to identify and prioritise the specific product niches in which Swaziland has competitive advantages.

Thirdly, analysis will be undertaken by the STA in collaboration with stakeholders to identify and prioritise gaps in the market, focusing on the product niches which Swaziland has a competitive advantage in supplying. This information will be used to develop a product strategy that will aim to strengthen Swaziland’s unique identity and will be used to guide the identification and development of new and existing tourist facilities and attractions. The product strategy will aim to cluster products and services and to encourage differentiation and branding.

Once a determination is made as to where the demand is and what Swaziland has to offer, plans for development of opportunities and promotion to foreign and domestic visitors will need to be made. The STA will identify and promote anchor projects to spread infrastructure development and precipitate the emergence of local attractions and supporting entrepreneurial activity. To qualify as anchor projects developments will have to meet certain minimum investment criteria, as stipulated by the STA and/or Government. Anchor projects will be used as a mechanism for stimulating economic activity in areas historically deprived of development. Appropriate concessions will be offered to facilitate and encourage the necessary investment in anchor projects.

Wherever possible, the products should be developed with strong local involvement. A brochure and attractive web site should be prepared for distribution to potential local and foreign investors, setting out details (including possible sites) of the above and other investment opportunities in the tourism sector, especially with regard to key investment areas such as the Maputo Development Corridor and the Lubombo Spatial Development Initiative, the Maguga Dam and the planned biodiversity and tourism corridors.

Another important factor that will facilitate the development of the tourism product in Swaziland is an improved investment climate. The investment climate can be improved by making policies and incentives for expansion of existing facilities and for new investors in the tourism sector more transparent and by developing a clear strategy for investments. This will be in the form of a physical plan for the country:

• identifying areas with investment potential;
• identify investors that fit with the development philosophy of the country;
• aggressively seek out these investors; and
• prohibiting certain types of industrial activity in and around these areas.

It is important that Swaziland develops new products that reinforce the strengths of its tourism image. It is expected that the potential areas for the future development of tourism in Swaziland may include:

• adventure activity/sports tourism
• eco-tourism
• culture tourism
• festivals tourism
• meetings and conventions tourism
• water-based tourism at dams and rivers

Swaziland’s relatively small size and the proximity of attractions will facilitate the establishment of routes linking key features and attractions including inter-nodal routes, between major attractions; intra-nodal routes, in and around major attractions; and, specialist routes - historical, scenic, wildlife, birding, art and craft, adventure, etc. Long and short distance hiking and walking routes will also be promoted.

5.5 To strengthen the cultural aspects of the tourism product in Swaziland and to promote Swazi involvement and community-based tourism with the aim of spreading benefits as widely as possible.

The success and sustainability of the tourism sector in Swaziland will be based on the meaningful involvement of Swazis in the tourism sector. Every effort will be made to encourage the participation and involvement of local people. The private sector will be encouraged to play an important role in this. The strategies to achieve this objective will be closely linked to the government’s programme for domestic investment promotion and small business development.

The unique traditional culture and the aura of the Monarchy will play an important role in attracting increasing numbers of tourists to Swaziland. Tourism will be used as a nation building tool that preserves the history and strengthens the pride and knowledge in Swazi culture and traditions. The STA will enter into a dialogue with the appropriate authorities to agree on a strategy for the promotion of culture and traditional ceremonies to contribute to tourism marketing and development in the country. Agreement will also be reached on measures to minimise the negative impacts of culture tourism.

The STA will promote local involvement and community based tourism. Swazis will be actively encouraged to become more involved in the provision and development of tourism products. To achieve this the STA will:

• Implement training and awareness programmes that are aimed at changing negative attitudes towards tourists so that Swazis appreciate the nature of tourism and are aware of the potential opportunities that can be exploited to achieve social, economic and environmental benefits.
• Give priority support to community or locally owned initiatives aiming to develop cultural, historical and natural sites and attractions with tourism potential. Partnerships with private sector developers on equitable terms, including joint shareholding, will be encouraged.
• Provide appropriate information, training and assistance to access finance to community initiatives, community partnerships with the private sector and Swazi-owned tourism enterprises.
• Promote community involvement, including shareholding, in the management of national parks in partnership both with the government and the private sector.
• Through the integrated area plans for tourism, promote the development of infrastructure to facilitate community-based tourism enterprises.
• Actively support the Community-Based Tourism Association and facilitate their involvement in the planning process for the sector.

5.6 To deliver high quality service at all levels in the tourism industry through the establishment of minimum standards and participatory regulation, and by supporting training and human resource development.

The quality of the Swazi tourism product will be improved at all levels – from management and staff to government services. Improvement of service quality will involve physically upgrading the quality of the tourism infrastructure and related services, as well as the quality of service delivery so as to attain higher levels of customer satisfaction.

The STA will aim to achieve this objective through:

• Introducing and promoting quality management techniques in the tourism industry.
• Undertaking a training needs assessment study to determine the numbers and types of workers in the tourism and tourism-related industries that require training, taking into consideration the need to upgrade service standards throughout the sector. The study will also assess the needs of existing training institutions both in terms of equipment and manpower.
• On the basis of the study, proposals will be drawn up for addressing the identified training needs of the tourism sector, including the need for in-service training for existing employees, basic training for new entrants and courses for public sector officials such as customs and immigration officers, Department of Tourism staff, SNTC personnel, etc. The private sector will be expected to support the training of employees.
• Working with the Hotel and Tourism Association and other stakeholders to introduce and monitor appropriate standards and classification systems for the tourism sector.
• Reviewing the licensing and other regulations that impact on the tourism industry and making recommendations for improvements relating to both the requirements and the monitoring process.
• Promoting improved product quality by upgrading the physical quality of the tourism infrastructure and related services. Services at hospitals, banks (foreign exchange) and borders, as well as food, health and water quality will be reviewed and proposals will be developed for improvements.

5.7 To make the tourism industry in Swaziland a leader in responsible environmental practices, through adherence to environmental legislation and to encourage the conservation and sustainable usage of natural resources.

The STA will establish close collaboration with the Swaziland Environment Authority and will actively promote responsible environmental practices and adherence to environmental legislation in the tourism sector. Environmentally sustainable and minimal impact tourism development will be included as important factors in approving incentives for investors.

The Ministry of Tourism, Environment and Communications will form a National Committee for Conservation, which will be responsible for developing and maintaining a prioritised list of the main natural sites and biodiversity areas to be considered for future conservation and tourism development through active research and collaboration with relevant institutions. This Committee will include representation from STA, Swaziland National Trust Commission (SNTC), Swaziland Environment Authority (SEA), the Forestry Section (Ministry of Agriculture and Cooperatives), the Conservation Trust, the Natural History Society and private sector organisations involved in conservation.

The communities living in or around the sites will be consulted and a plan will be developed for their involvement. The final decision concerning the conservation and utilisation of areas of high biodiversity significance and natural sites will be taken by the relevant Ministries. The STA will support these agencies in carrying out the necessary follow-up action to ensure the sites are protected. This Committee will also be responsible for overseeing the preparation of a strategic plan for the future development of the countries wildlife reserves including stronger community involvement and site protection from future development.

The objective will be to ensure that communities benefit from conservation and are given incentives to actively participate in conservation protection. The Committee should also actively involve itself in protecting Swaziland's natural environment and intervene or comment on industrial planning activities.

5.8 To participate actively and take full advantage of strategic regional initiatives, such as the Lubombo Spatial Development Initiative and the Maputo Corridor.

Swaziland offers the tourist a combination of secondary attractions that together amounts to something very special (including culture, nature, environment, a natural hot spring, aesthetic qualities, etc.). Through capitalising on regional developments such as the Lubombo Spatial Development Initiative, the Maputo Development Corridor and the Lubombo Trans-frontier Conservation Area, Swaziland will become known through major linked attractions. The development of tourism and environmental initiatives, such as the Bio-diversity and Tourism Corridors and the proposed "Royal Route", which focus on regional links, will provide a powerful reason to visit Swaziland.

The development of regionally linked programmes will be explored in detail, feasibility studies carried out as well as work with communities. The selected areas will be profiled for potential projects and sold to investors – from the nearby communities, and to other local, regional and international investors.

The STA will work actively with the relevant Government Departments to strengthen Swaziland’s involvement in developing regional initiatives. The STA will be represented at relevant meetings and will facilitate the involvement of the private sector in the development and implementation of regional programmes. A high priority will be given to regional links in the identification and development of integrated area planning for tourism.

5.9 Existing best practices in tourism development will be identified and strengthened.

The tourism policy will be reviewed at regular intervals by the Ministry responsible for Tourism in consultation with STA in order to introduce best practices into tourism development on the basis of experience learned in Swaziland and from other countries and to ensure complementarity with policies in other sectors.

The criteria for provision of incentives for private sector tourism development will be kept under constant review by the Ministry, STA, SEA and the Swaziland Investment Promotion Authority (SIPA) in order to promote best practices.

6. Financing the Tourism Industry

The Ministry responsible for Tourism will draw its annual budget from the National Consolidated Fund, so as to perform and achieve its Ministerial objectives and facilitate those projects that fall within its scope.

The STA will seek establishment funding to facilitate its setting up and initial period of operation. It is hoped that thereafter, its operation will be largely self-financing in terms of recurrent marketing and administration expenditure through the implementation of tourism levies and other charges to be paid into a dedicated Tourism Fund.

Government will fund certain developmental activities of the STA through an annual subvention and by facilitating access to donor funding. Activities funded under this source of finance would include inter alia marketing, training programmes aimed at developing entrepreneurial skills in the industry, research and development programmes on cultural and historical resources and tourism awareness campaigns, especially through the school curriculum.

The STA will endeavour to broaden its financial base through encouraging the development of the tourism industry, whereby its ability to collect tourism levies is continually increasing as the industry grows.

The development of the profitable tourism services and facilities, as per its stated vision and objectives, will be financed by private sector investment. The STA, in co-operation with the relevant Government Ministries and Agencies will spearhead initiatives to attract both local and international expansion and new investment, by formulating investment incentives and other suitable tools for stimulating growth.

The policy of offering investment incentives will be guided by the National Tourism Policy to stimulate co-ordinated and strategic investment activity. The criteria for incentives, amongst others, will consider:

• The location of investment with incentives for establishment in undeveloped areas with real potential for growth away from existing centres,
• The contribution that the investment makes to Swaziland’s product, offering specifically cultural, historical and environmental aspects,
• Those investments which provide widespread social, environmental and economic benefits.

STA in collaboration with SIPA will advise Government on the criteria and how it should operate.

Special cognisance will be taken of the need to stimulate local entrepreneurial activity and providing the framework under which this can be precipitated.

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This page was last updated on 03 February 2004