Punjab Tourism For Economic Growth
Punjab Tourism for Economic GrowthFinal ReportConsortium for Development Policy ResearchABSTRACTThis report documents the technical support provided by the Design Team, deployed byCDPR, and covers the recommendations for institutional and regulatory reforms as well as aproposed private sector participation framework for tourism sector in Punjab, in the contextof religious tourism, to stimulate investment and economic growth.
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Pakistan: Cultural and Heritage Tourism ProjectTABLE OF CONTENTSLIST OF ACRONYMS & ABBREVIATIONS56LIST OF FIGURES78LIST OF TABLES89LIST OF BOXES910ACKNOWLEDGMENTS1011EXECUTIVE SUMMARY111211819BACKGROUND AND 1.6.2INTRODUCTIONPAKISTAN’S TOURISM SECTORTRAVEL AND TOURISM COMPETITIVENESSECONOMIC POTENTIAL OF TOURISM SECTORINTERNATIONAL TOURISMDOMESTIC TOURISMECONOMIC POTENTIAL HERITAGE / RELIGIOUS TOURISMSIKH TOURISM - A CASE STUDYBUDDHIST TOURISM - A CASE STUDYDEVELOPING TOURISM - KEY ISSUES & CHALLENGESCHALLENGES FACED BY TOURISM SECTOR IN PUNJABCHALLENGES SPECIFIC TO HERITAGE 839402 EXISTING INSTITUTIONAL ARRANGEMENTS & REGULATORY FRAMEWORK FORTOURISM SECTOR43442.1 CURRENT INSTITUTIONAL ARRANGEMENTS2.1.1 YOUTH AFFAIRS, SPORTS, ARCHAEOLOGY AND TOURISM DEPARTMENT (YASA&T)2.1.2 TOURISM DEVELOPMENT CORPORATION OF PUNJAB (TDCP)2.1.3 EVACUEE TRUST PROPERTY BOARD (ETPB)2.1.4 PAKISTAN SIKH GURDWARA PRABANDHAK COMMITTEE (PSGPC)2.1.5 AUQAF DEPARTMENT2.1.6 WALLED CITY LAHORE AUTHORITY2.1.7 ENVIRONMENT PROTECTION AGENCY (EPA)2.1.8 LAHORE DEVELOPMENT AUTHORITY2.1.9 INSTITUTE OF TOURISM AND HOTEL MANAGEMENT (ITHM)2.2 NEED FOR INSTITUTIONAL REFORMS2.3 CURRENT REGULATORY FRAMEWORK2.3.1 CONSTITUTIONAL MANDATE AND LEGISLATIVE SPACE2.3.2 CURRENT LAWS IN 45554555556358593.13.2POLICY FRAMEWORK FOR TOURISM DEVELOPMENTTOURISM IN THE CONTEXT OF THE PUNJAB GROWTH STRATEGYPRINCIPLES OF POLICY FOR TOURISM SECTOR IN PUNJABConsortium for Development Policy Research585960613
Pakistan: Cultural and Heritage Tourism Project4PRIVATE SETCOR AND OTHER STAKEHOLDERS’ PERSPECTIVE63645GLOBAL INSIGHTS68696PROPOSED INSTITUTIONAL & REGULATORY REFORMS77786.1 KEY PRINCIPLES FOR INSTITUTIONAL REFORMS77786.2 PROPOSED INSTITUTIONAL STRUCTURE78796.2.1 FEDERAL-PROVINCIAL COORDINATION AND ALIGNMENT78796.2.2 STRENGTHENED PUBLIC SECTOR CAPACITY FOR TOURISM SECTOR MANAGEMENT79806.2.3 SPECIALIZED INSTITUTIONAL CAPACITY FOR MANAGING HERITAGE SITES82836.2.4 INSTITUTIONAL CAPACITY TO IMPLEMENT RELIGIOUS, CULTURAL & HERITAGE TOURISM PROJECT85866.2.5 PROMOTING PRIVATE SECTOR-LED GROWTH86876.2.6 STRENGTHENING PRIVATE SECTOR CAPACITY88896.3 PROPOSED LEGAL & REGULATORY REFORMS91926.3.1 LEGAL FRAMEWORK TO SUPPORT INSTITUTIONAL REFORMS92936.3.2 EASING THE PAKISTAN-INDIA VISA REGIME93947PRIVATE SECTOR PARTICIPATION FRAMEWORK FOR TOURISM 7.3.47.3.57.3.67.47.4.17.4.28CONSTRAINTS TO PRIVATE INVESTMENTSCOMPONENT I - PROPOSED PRIVATE SECTOR PARTICIPATION FRAMEWORK FOR TOURISMNEED FOR A TOURISM PPP FRAMEWORKTHE PROPOSED PPP FRAMEWORKPROPOSED INSTITUTIONAL FRAMEWORK FOR TOURISM PPPSPROPOSED TOURISM INFRASTRUCTURE FUNDCOMPONENT II - INVESTMENT POLICY FOR TOURISM INVESTMENTSUSE OF PUBLIC ASSETS AND LANDAPPROVAL FOR ALL PERMITS / DEVELOPMENT PLANSONE-WINDOW FACILITATIONFINANCIAL ARRANGEMENTSTAX POLICY PREDICTABILITYALTERNATIVE DISPUTE RESOLUTIONPRIVATE SECTOR PARTICIPATION IN HOSPITALITY & TOURISM SKILLS DEVELOPMENTINVESTOR CONFERENCE FOR TOURISM SKILLSPUBLIC PRIVATE COLLABORATION FOR ESTABLISHMENT OF A HOSPITALITY 106105106107108ANNEXURE108109ANNEX A: LIST OF STAKEHOLDERS CONSULTEDANNEX B: CULTURAL HERITAGE OF PUNJAB, PAKISTANANNEX C: CULTURAL HERITAGE OF PUNJAB, PAKISTANANNEX D: FURTHER DETAILS ON PROPOSED TOURISM PPP FRAMEWORKANNEX E: COMMUNICATION STRATEGYANNEX F: LIST OF DESTINATIONS IN PUNJAB FOR DOMESTIC TOURISMANNEX G: ILLUSTRATIVE TOURISM PRODUCTS FOR PUNJABANNEX H: MATRIX OF PROPOSED TOURISM PRODUCTSANNEX I: DATA COLLECTION STRATEGY FOR EVIDENCE-BASED DATA COLLECTIONANNEX J: MAJOR SUFI TOURIST SITESANNEX K: MAJOR SIKH TOURIST 1421441451451461461474Consortium for Development Policy Research
Pakistan: Cultural and Heritage Tourism ProjectLIST OF ACRONYMS & ATPITHMPPPPSGPCPTDCRMUSGPCAnnual Development PlanAustralian Standing Committee on TourismAssociation for Small & Medium Enterprises in TourismAustralian Tourism Export CouncilCommunication & Works DepartmentCouncil for Common InterestsConsortium for Development Policy ResearchCollege of Tourism and Hotel ManagementNational Council for TourismTourism Promotion CouncilDirectorate General for EnterpriseDepartment for Tourism ServicesEnvironment Protection AgencyEnvironmental Impact AssessmentEvacuee Trust Property BoardGross Domestic ProductJapan Tourism AgencyInformation & Communications TechnologyInterprovincial CoordinationInformation TechnologyIndian Tourism Development CorporationInstitute of Tourism and Hotel ManagementKhyber PakhtunkhwaLahore Development AuthorityMulti-National CorporationsMinistry of Tourism & CultureMinistry of Tourism & SportsMemorandum of UnderstandingMalaysia Tourism Quality AssuranceNew England Association of Schools and CollegesNon-Objection CertificateNational Tourism AllianceNational Tourism OrganizationOnline Tourism Business Licensing ServicePlanning & DevelopmentPakistan Association of Tour OperatorsPunjab Strategy GrowthPakistan Hotels AssociationPakistan Institute of Legislative Development and TransparencyPakistan Institute of Tourism and Hotel ManagementPublic Private PartnershipPakistan Sikh Gurdwara Parabandhak CommitteePakistan Tourism Development CorporationRisk Management UnitShiromani Gurdwara Parbandhak CommitteeConsortium for Development Policy Research5
Pakistan: Cultural and Heritage Tourism ProjectSLTDASTOTCITDCPTEPATHE – ICETMCTTFUNESCOWAPDAWASAWCLAWTOWTTCYASA & TSri Lanka Tourism Development AuthorityState Tourism OrganizationTourism Investment CommitteeTourism Development Corporation of PunjabTraffic Engineering & Planning AgencyInternational Centre of Excellence in Tourism and Hospitality EducationTourism Ministers CouncilTourism and Transport ForumUnited Nations Educational, Scientific and Cultural OrganizationWater & Power Development AuthorityWater and Sanitation AgencyWalled City Lahore AuthorityWorld Tourism OrganizationWorld Travel and Tourism CouncilYouth Affairs, Sports, Archaeology & Tourism6Consortium for Development Policy Research
Pakistan: Cultural and Heritage Tourism ProjectLIST OF FIGURESFigure 1.1 Tourism and Travel Contribution to GDP and Employment in Pakistan . 1918Figure 1.2 GDP Growth and Growth of Tourist Arrivals in Pakistan (%). 2019Figure 1.3 International Tourism: Number of Arrivals and Receipts. 2120Figure 1.4 Receipts as a Percentage of GDP . 2120Figure 1.5 Receipts for Tourism Exports 2014. 2221Figure 1.6 Receipts from International tourism versus Service Exports, Pakistan 2015 . 2221Figure 1.7 International Tourism Receipts compared with Top Exports 2015, . 2322Figure 1.8 Travel and tourism competitiveness . 2423Figure 1.9 Current and Potential Contribution of International Tourism in Pakistan . 2625Figure 1.10 Distribution of Annual Visitors to Historical / Religious Sites in Punjab . 2625Figure 2.1 Map of key sites of Religious Significance . 2829Figure 2.2 Map of main Gurdwaras in Punjab, Pakistan .Error! Bookmark not defined.31Figure 2.3 Sikh Religious Tourism in Pakistan, Number of VisitorsError!Bookmarknotdefined.32Figure 2.4 Expenditure Patterns of Sikh Tourists .Error! Bookmark not defined.33Figure 2.5 Map of Buddhist Sites in Punjab. 3638Figure 2.6 Reasons for Lack of Interest in visiting Pakistan amongst Buddhists . 4139Figure 3.1 Existing Institutional Mapping for Tourism Sector . 4341Figure 3.2 Organizational Structure of TDCP. 4744Figure 7.1 Proposed Institutional Structure for Tourism Sector . 7876Figure 8.1 Proposed Private Sector Participation Framework for Tourism Sector . 9593Consortium for Development Policy Research7
Pakistan: Cultural and Heritage Tourism ProjectLIST OF TABLESTable 1.1 Inflow of Foreign Visitors compared to other Countries . 2425Table 1.2 Estimates for Revenue Collection through Domestic Tourism . 2728Table 2.3 Projected Direct Expenditure by Sikh Tourists . 3435Table 2.4 Total Projected Impact of Sikh Tourism. 3435Table 2.5 Direct Impact of Buddhist Tourism . 3637Table 2.6 Total Projected Impact of Buddhist Tourism . 3738Table 3.1 Sikh and Hindu Religious Tourism Traffic . 4849Table 3.2 Snapshot of Existing Regulatory Regime . 57Table 6.1 International Examples for Tourism Institutional Frameworks . 7071Table 7.1 Proposed Regulatory Reforms for Tourism Sector . 91928Consortium for Development Policy Research
Pakistan: Cultural and Heritage Tourism ProjectLIST OF BOXESBox 1.1 Lack of Provincial Level Data 21Box 1.2 Sufi Tourism . 31Box 2.1 Preserving Shergarh – A Heritage Town . 47Box 2.2 Preserving Heritage at Katas Raj – Role of ETPB .51Box 2.3 EPA and Heritage . 54Box 6.1 UNESCO Guidelines for Heritage Sites 85Box 6.2 Preserving the Past to Invest in the Future .86Box 6.3 PRMP’s Capacity to Implement Procurement . 88Box 7.1 Divesture of Commercial Assets Managed by TDCP 103Consortium for Development Policy Research9
Pakistan: Cultural and Heritage Tourism ProjectACKNOWLEDGMENTSThe final report Punjab Tourism for Economic Growth10Consortium for Development Policy Research
Pakistan: Cultural and Heritage Tourism ProjectEXECUTIVE SUMMARYInternational tourism contributes only US 1bn or 0.4% to Pakistan’s GDP which is a merefraction of the sector's potential. The country is home to one of the oldest civilizations inthe world, has innumerable locations of natural beauty, world’s highest mountains, uniquearts and crafts and, reflecting the diverse and pluralistic tradition of the Indus Valley, manyhistoric sites and religious places that include Muslim shrines, Hindu temples, SikhGurdwaras and Buddhist monasteries. It is estimated that with the right policies in place andeffective implementation, Punjab alone could contribute three to four fold increase in thecountry’s tourism revenues.In order to capitalize on this immense potential, there is a need to address a number ofbottlenecks faced by the tourism sector. These include: the absence of quality standardsand enforcement regime, limited investment, dilapidated or sub-optimal infrastructure, lackof policy relevant data and apprehensions regarding safety and security of tourists. Thepublic sector’s limited institutional capacity to modernize the sector further impedesgrowth.Government of Punjab is keen and committed to developing a comprehensive strategy forputting tourism on a solid footing to realize its full income and employment potentialconsistent with the objectives of Punjab Growth Strategy. Towards that end, Governmentof Punjab aims to include World Bank funded ‘Regional Cultural and Heritage Tourism’project in its Medium Term Growth Framework. The project aims to provide state-of-the-arttourist services across Punjab, focus on high-opportunity segments such as heritage tourismand mobilize private sector investment in tourism. It is expected that such a strategy willmake tourism one of the main engines of growth, employment generation and foreignexchange and revenue earnings.Consortium for Development Policy Research (CDPR) has been commissioned by thegovernment to help adopt an informed, contemporary, view of tourism and assist indesigning a reform program to modernize the sector. To meet these objectives, this reportassesses the tourism potential of Punjab, identifies the hurdles that have prevented therealization of the potential and recommends what needs to be done to remove the hurdlesand modernize the sector. Drawing on international experience and in-country stakeholderconsultations, this report recommends an institutional and regulatory reform package fortourism and proposes a private sector participation framework.PUNJAB’S TOURISM POTENTIALPakistan’s low tourism competitiveness provides tremendous room for improvement andcapacity to contribute towards economic growth. Pakistan is currently ranked 125 out of141 benchmarked countries on the Travel & Tourism Competitiveness Index, developed bythe World Economic Forum, however Pakistan is considered one of the cheapest countries inthe world for tourists and ranked 9th in Price Competitiveness. Pakistan’s low ranking on theindex provides a massive opportunity to improve. Any such movement up the index, in turn,would result in substantial increase in the sector’s contribution to GDP. The World TravelConsortium for Development Policy Research11Commented [HS1]: Lack of private sector focus?Transport connectivity!
Pakistan: Cultural and Heritage Tourism Projectand Tourism Council (WTTC)’s Economic Impact 2016 report for Pakistan1 shows that travel& tourism directly contributed PKR 780.4bn or 2.8% to National GDP in 2015. If indirect andinduced effects are taken into account, the contribution of the sector increases to PKR1,918.5bn or almost 7% of GDP.The potential of domestic tourism is even more significant than the international tourismsegment. More than 45 million domestic tourists travel each year across Pakistan2. As perWorld Travel and Tourism Council estimates, in the year 2015, domestic travel spending inPakistan claimed 90.8% of direct travel & tourism GDP. Domestic travel spending is expectedto grow by 3% in 2016 to more than PKR 1 trillion and rise by 5.3% per annum to almost twotrillion rupees in 2026.WHY THE POTENTIAL IS NOT REALIZEDStakeholders’ views, analysis of previous World Bank studies and other reports, mappingof existing institutional and regulatory regimes for tourism sector, selected visits toheritage sites, feedback from tourists and a review of international best practices haveinformed this report. A number of stakeholder sessions were conducted to seek privatesector’s feedback on tourism sector issues in Punjab and seek suggestions to improve it.These sessions were preceded by a thorough review of available pool of information,previous reports and a number of background studies conducted by World Bank. Visits weremade to various heritage tourism sites and feedback from domestic and internationaltourists was also recorded. Alongside stakeholder feedback, it was also important to drawinsights from other countries and review how tourism sector is being managed there. Areview of tourism sector in some other comparable countries therefore also informed thisstudy.Sub-optimal federal-provincial coordination, low resource allocation and other crosscutting challenges have been impeding tourism sector’s growth. It is pertinent to highlightthe absence of a tourism management entity at the federal level as one of the keyimpediments, leading to lack of national branding strategy, no institutional ownership toease federal regulations impacting tourism such as visa regime and difficulties in resolvinginter-provincial issues. Moreover, traditionally, tourism sector has been low on priority ofsuccessive governments with meager resource allocations and poor development.Deteriorating security environment in the last two decades has further dampened tourists’interest in the country. Private investment has been limited with dilapidated infrastructureand sub-optimal enforcement of standards.A complex and incoherent institutional framework at the provincial level has furthercompounded the issues faced by the sector. A number of departments and agencies operatein tourism sector in Punjab, preventing adoption of a cohesive approach for sectordevelopment. A closer look at the existing institutional arrangements reveals that not only isthere little or no coordination between various departments but also none of these has anyspecialized experience to manage heritage sites. Federal jurisdiction of Evacuee TrustProperty Board over many heritage sites is ambiguous. Department of Tourist Services haslimited capacity to drive innovation, while TDCP through its commercial operations is in fact1Available at e total number of domestic tourists in Pakistan during the year 2009 equaled 46.07 million.PILDAT, 201512Consortium for Development Policy ResearchCommented [HS2]: Can Punjab tap the seasonal factor(winter holidays)?
Pakistan: Cultural and Heritage Tourism Projectdistorting the competition rather than supporting the private sector. Government does nothave any professional interface to work with private sector in tourism industry and there isno institutional arrangement for standard setting or quality assurance.The regulatory framework for the tourism sector is outdated. There are only three majorlaws, which were enacted in 1976 and were based on the regulatory ethos of the 60s, whichinter alia included mechanisms for control of prices rather than sector development andattracting private investment. These include Hotel and Restaurants Act, Travel Agencies Act,1976 and Tourist Guides Act, 1976. In addition, a number of laws indirectly or directly affectthe sector such as environmental regulations 3, natural resources4 regulations, buildingregulations, visa regimes etc. calling for a serious need to re-think the regulatory landscapefor tourism sector.The stakeholders identified a number of areas impacting tourism sector, where the role ofthe state has been deficient. For instance, the government undertakes virtually nomarketing efforts and only limited participation in international trade fairs, underscoring theneed to have a dynamic marketing strategy. They also highlighted poor quality of facilitiesavailable at tourist areas and sub-optimal roads and transportation connecting such areas ofinterest with the need to upgrade the infrastructure with safe, clean, abundant andattractive facilities for local and international tourists, with special focus on women andchildren’s needs. According to them, t
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Punjab has set ambitious growth and inward investment targets. However, after years of outpacing the national economy, growth in Punjab has recently slowed to about half the level called for in the Punjab Growth Strategy 2018. The private sector is the engine for growth, accounting for some 90% of Punjab’s output of goods and services.
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An Act to reorganize the Punjab Technical Education and Vocational Training Authority. 1[1]This Act was passed by the Punjab Assembly on 14 July 2010; assented to by the Governor of the Punjab on 19 July 2010; and, was published in the Punjab Gazette (Extraordinary), dated 20 July 2010, pages 197-202.
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