CC BY
21
Lyudmila I. DONSKOVA
Aleksandr H. REDKIN
UDC 338.48
DOI: 10.24411/1995-042X-2020-10507
Russian State Social University (Moscow, Russia) PhD in Economics, Associate Professor; e-mail: [email protected]
Altai State University (Barnaul, Altay Kray, Russia) PhD in Geography, Associate Professor; e-mail: [email protected]
ISSUES OF STATE REGULATION OF SOCIAL TOURISM: INTERNATIONAL AND RUSSIAN EXPERIENCE
Abstract. The analysis of the issues of tourism state regulation as a socio-economic system, the part of which is social tourism, comprises the approaches of foreign and Russian authors, the identification of opportunities and limitations, as well as the specific features of the author's observation. An integrated approach to the regulation of tourism and tourism policy defines the mutual interaction of various policy areas on tourism, communications and relations, as well as the socio-economic efficiency assessment emphasizing the importance of social characteristics and indicators, which will provide a synergistic effect and sustainability of tourism. The key political issue in tourism management is how to respond to current global economic and social challenges while staying competitive in the context of sustainable development. The government is required to maintain a balance in public administration and market relations, and, if necessary, adjust its activities to ensure the development of tourism and its reliability. At the same time, the focus should be on social efficiency and environmental sustainability, which transfers the vector of research to territories and regional formations. As a result, it is important to take into account real world trends and Russian conditions, combining market and government regulation and public-private partnership and public regulation while forming a tourism regulation model, including social tourism.
Keywords: integrated approach, tourism system, socio-economic indicators, touristic policy, management efficiency, synergy
Citation: Donskova, L. I., & Redkin, A. H. (2020). Issues of state regulation of social tourism: international and Russian experience. Servis v Rossii i za rubezhom [Services in Russia and Abroad], 14(5), 84-92. doi: 10.24411/1995-042X-2020-10507.
Article History
Received 19 November 2020 Accepted 20 December 2020
Disclosure statement
No potential conflict of interest was reported by the author(s).
© 2020 the Author(s)
This work is licensed under the Creative Commons Attribution 4.0 International (CC BY-SA 4.0). To view a copy of this license, visit https://creativecommons.org/licenses/by-sa/4.0/
УДК 338.48
DOI: 10.24411/1995-042X-2020-10507
ДОНСКОВА Людмила Ивановна
Российский государственный социальный университет (Москва, РФ) кандидат экономических наук, доцент; [email protected]
РЕДЬКИН Александр Германович
Алтайский государственный университет (Барнаул, Алтайский край, РФ) кандидат географических наук, доцент; [email protected]
ВОПРОСЫ ГОСУДАРСТВЕННОГО РЕГУЛИРОВАНИЯ СОЦИАЛЬНОГО ТУРИЗМА:
ЗАРУБЕЖНЫЙ И РОССИЙСКИЙ ОПЫТ
Анализ вопросов государственного регулирования туризма как социально-экономической системы, частью которой является социальный туризм, охватывает подходы зарубежных и российских авторов, выявление возможностей и ограничений, а также специфические особенности авторского наблюдения. Комплексный подход к регулированию туризма и туристкой политики характеризует взаимовлияние различный сфер политики на туризм, связи и отношения, а также оценку социально-экономической эффективности, в которой важны общественные характеристики и показатели, что обеспечит синергетический эффект и устойчивость туризма. Ключевой политический вопрос в управлении туризмом - как реагировать на текущие глобальные экономические и социальные проблемы и оставаться при этом конкурентоспособными в контексте устойчивого развития. От правительства требуется поддерживать баланс в государственном администрировании и рыночных отношениях, а при необходимости корректировка своей деятельности для обеспечения развития туризма и его надежности. При этом следует сосредоточить внимание на социальной эффективности и экологической устойчивости, что переносит вектор исследований на территории и региональные образования. В результате при формировании модели регулирования туризма, в том числе социального туризма, важно учитывать и реальные мировые тенденции, и российские условия, сочетая рыночное и государственное регулирование, а также частно-государственное партнерство и общественное регулирование.
Ключевые слова: комплексный подход, туристская система, социально-экономические показатели, туристская политика, эффективность управления, синергия
Для цитирования: Донскова Л.И., Редькин А.Г. Вопросы государственного регулирования социального туризма: зарубежный и российский опыт // Сервис в России и за рубежом. 2020. Т.14. №5. С. 84-92. DOI: 10.24411/1995-042X-2020-10507.
Дата поступления в редакцию: 19 ноября 2020 г. Дата утверждения в печать: 20 декабря 2020 г.
Introduction
For each country, inbound and domestic tourism is of great economic, political and socio-cultural importance, which updates the significance of state authorities and administration activities. This is especially crucial for such social categories of population as children, schoolchildren, disabled people, retirees, youth and other groups representing social tourism forms, in general.
In Russia, to increase inbound and domestic tourism, active measures, in particular, legislative and legal ones are being taken. They include the regulation of visa formalities, customs rules for foreign tourists, as well as the provision of financial incentives, subsidies to stimulate domestic tourism, etc.
Currently, the strategic line for the development of domestic and inbound tourism is aimed at a new quality level. To achieve the goals of the Strategy for the Tourism Development in the Russian Federation for the period up to 2035, "it is necessary to identify the potential for a tourist product to meet the expectations of target audiences, identify priority territories and create conditions for increasing the interest of businesses in the systemic development of tourism" [1, 12].
Having been influenced by the events occurring in the world, specifically, the global economic, financial and social crises, including those related to COVID, tourism, on the one hand, shows the ability to adapt to difficult conditions changing in different parts of the world, and suffers a variety of losses (material, financial, human), on the other hand. Therefore, the government is required to maintain a balance in public administration and market relations, and, if necessary, adjust its activities to ensure tourism development and its reliability.
In this context, the purpose of this study is to form an approach to the regulation of social tourism and tourism policy as a system from a scientific and practical point of view taking into account the connections and relationships of different fields of activity and assessment of social and economic efficiency.
Research methodology
Scientists' concern in such subject as the issues of tourism state regulation represented by the following foreign authors (P. Haxton [15], J. Kourilová [16], W. Paik [ 17], H. A. Shanzel [18] and others), as well as by Russian ones (I. V. Bushueva [1], S. S. Galasyuk [2], L. I. Donskova [35], A. G. Redkin [3, 5], Z. Yu. Zhelnina [6], I.S. Kabi-rov [7], K. V. Kruzhalin [8], S. A. Makhosheva [9], I. P. Monich [10], Yu. S. Putrik [11] and others) reflects various approaches. In particular, there are models, theories and techniques, in which, as a rule, an emphasis is placed on identifying stable relationships and political factors, taking into account the positive and negative consequences of tourism management.
In scientific research of tourism activities, the attention has been focused on market model regulation, due to the transition to the so-called post-industrial, information society (or a society with a new economy). In addition, the general global trend, namely, a decrease in the role of the central executive power in the implementation of economic processes and a reduction in public spending, in the field of tourism regulation leads to the emergence of mixed public-private institutions. They aim to attract funds from various sources while fulfilling government tasks.
In the long run, the evolution of the tourism state regulation model can occur, while the management system is being rebuilt in accordance with market realities and state policy, as well as with an increase in its contribution to the economy, the social significance of tourism (a growth in the share of people employed in the tourism sector, the revival of national crafts, the development of small entrepreneurship).
In this case, the development of social and economic criteria and increasing the importance of the social role of tourism, especially for social categories of the population, predetermines the role of social tourism, in which the social aspect is considered to be dominant.
From this point of view, foreign authors characterize social tourism as a factor of social integration (that increases self-esteem, improves
family relations) [16]. It serves as a means of democratization and the implementation of equal rights of various groups of the population [18]. However, its economic benefits are noted for the country and regions.
The main provisions on which the research methodology is based are state regulation models, market mechanism, the concept of social tourism, principles, functions, social and economic content, initiatives and social projects [3].
More specific examples of state regulation, namely the models of social tourism, are cited by Ya. Kyurilova, I. Kratokhvilova in a scientific publication [16]. Note that the models cited according to the following criteria: 1) the specificity of the tourist product and 2) target groups of the population on the recommendation of the European Union (EU). Looking back that social tourism in Europe is associated with the Calypso social tourism project (2012) supported by the European Parliament. The aim of this project is to equalize people's access to travel and support social tourism in the EU countries, especially for such categories of the population as the elderly and retirees, young people aged 18-30, families with modest means and people with disabilities. Therefore, measures helping to implement social tourism are subdivided into specially supporting, firstly, receiving enterprises, and secondly, visitors using social benefits.
EU countries fall into four main categories such as a participation model, an inclusion model, an adaptation model and an incentive model. The Participation Model focuses on disadvantaged individuals who participate in tourism activities that are available on a regular base to other citizens.
The Inclusion Model is designed to provide the broadest possible support for tourism in general, which means offering standard tourism products for everyone, not just social groups.
The Adaptation model is a system of incentives that supports tourist products available to social groups (other citizens cannot use them).
The Stimulation Model aims to expand the target group visitors and thus helps tourism businesses generate higher income, reduce seasonal
fluctuations in tourist flows and better utilize the potential of the social fund.
Examples of these models are given mainly in European countries, in particular, in France, Great Britain, and Spain, where social tourism is supported in the segment of senior citizens, families with children, youth, elderly people, and disabled people encouraging their participation in tourism [16].
Summarizing the main results of the study, social initiatives that form a tool for achieving the goal of social tourism, the scientists defined the key indicator of the successful implementation of social tourism. In addition to statistics, it is turned out to be people, namely, a barometer for measuring their health and social well-being.
An effective management policy displays tourism and its relationship with land-use planning, transport development, small and medium-sized enterprises, economy, culture, foreign policy, ecology, etc. As one of the strategies, it is proposed to limit the government from business operations in the use of attractions for the development of the tourism industry [15].
In the scientific works of domestic authors studying the tourism state regulation, models are identified according to three or four criteria, in particular: 1) self-regulation; 2) active government support for tourism at the partnership level; 3) tourism as a priority sector of economy. Other studies (see: [2, 6, 8]) describe more the form of the administrative and managerial structure.
It should be noted that, in the above examples, the main emphasis is done on information, communications, connections, new knowledge. It is the mutually beneficial cooperation with representatives of private business and with the authorities of different levels on innovation and new directions of tourism that becomes important [13].
The regulatory mechanism and tourism policy characterize the degree of interaction, which is influenced by factors such as the socio-economic development of the country and the formed tourism industry.
At the same time, tourism shouldn't be
determined only as "the activities of people traveling and staying in places other than their usual place of residence, for no more than one year in a row for leisure, business and other purposes" (UNWTO, 2005), but much broader. Tourism includes host community, physical environment, housing, transportation, natural and humanmade attractions, commercial services and infrastructure, and their special combination makes tourism centers and destinations unique, conducive to success and competitiveness.
State regulation issues are interconnected with tourism as an object of regulation and its analysis from a scientific and practical standpoint, as well as trends and patterns both in the world and in any country.
First, social tourism as part of the tourist system, the main goal of which is to create conditions for travel and recreation for schoolchildren, working and studying youth, pensioners, veterans and the disabled, i.e. individuals to whom government and other organizations provide financial support.
Second, tourism is presented as a socio-economic system characterized by external and internal environment, connections, structure, relationships and features of this system.
Third, tourism defined as a tourism industry in which enterprises and organizations of various industries and spheres of activity act as subjects of a market economy. They may accept excessive government regulation and regulation in activities as suppressing of the entrepreneurial initiative manifestation.
Fourth, under the influence of external factors, in particular, the global economic, financial and social crises, including the events in the world related to COVID, tourism shows the ability to adapt to changing conditions in different parts of the world.
In this case, social tourism is perceived as a sector of the tourism market where buyers receive subsidies from funds allocated by the state for social needs or other sources of coverage.
The support of social tourism on the example of the EU countries and the Russian
Federation indicates the participation of the state, first of all, at the level of legislative and legal provisions.
In our country, the approach to state regulation of social tourism in the frames of state social policy is considered the most effective, assigning the main role to the state [11, 13]. With regard to social tourism, social and tourist components are highlighted in politics, which tends to be in budget policy at all levels of the budget system. An important condition for this is the delineation of powers, rights, responsibilities of the center and regions while implementing social functions [13].
In accordance with social policy, the social insurance mechanism, in combination with the mechanisms of social protection of the working and non-working population, actualizes and stimulates the social activities of firms, non-profit institutions, etc. Consequently, the main features of the model include the role of social insurance, a developed network of social services for the population, legislative consolidation of a set of state social guarantees, including in the field of recreation and tourism [13].
Discussion
In practice, modern social policy is controversial, since it emphasizes the social orientation of the economy on the budget. In this case, it is problematic in the possibilities of financing various economic, investment, scientific social programs not only from budgets of all levels, but also from extra-budgetary sources [13]. It should be emphasized that both social and ordinary tourists have the same goals. The difference between these types of tourism is only in the way of financing. At the same time, in our opinion, the peculiarities of social tourism are as follows, firstly, sources of funding, and secondly, the allocation of clear criteria for assigning social groups of the population (by status, age, employment, etc.).
It should be pointed out that in Russia there is no single document on the identification of social groups. The Strategy for Tourism Development in the Russian Federation for the period up to 2035 provides a definition of the concept of
"youth tourism as the tourism of individuals aged 18 to 35 years, which narrows the official framework of this category of the population [12]. Elaborating the laws on military personnel, the social insurance fund, the pension fund, the law on the disabled in the Russian Federation, categories of the population are distinguished for which social vouchers can be allocated. However, these are usually sanatorium-type vouchers, while abroad these are vouchers for recreation, travel, health improvement.
This experience of organizing social tourism is identical with the adaptation model (see above), which means a system of incentives that supports those tourist products that are available to social groups (other citizens cannot use them). Another problem arises from this. The targeting of aid in our country is also problematic to implement, as well as to exercise its control.
According to the experience, empirical studies of social tourism in 2017-2019 revealed many problems, in particular, tourist and cultural and educational services are relevant for various social groups, but the possibilities of their consumption are limited by finances. Tourism on a commercial, market basis is inaccessible for the majority of the population, despite the fact that more than half of holidaymakers took advantage of social vouchers. The rest of the respondents indicated such reasons: lack of need, money, supply, or even paid vacation. Social vouchers were offered by organizations: social protection, FSS (Social Insurance Fund), FOMS (Federal Compulsory Medical Insurance Fund), while employers' assistance was 21.9%. This indicates the possibility of obtaining social rest at the expense of the employer, which should be recognized as a positive fact [5].
The most relevant issue is the awareness of the population about social vouchers. As it turned out, many people do not even know that they have every right to use this type of tourism. Unfortunately, there is a share of the population that is unable to pay even a part of the cost of the voucher, provided by the company. This trend is spreading throughout the territory of our country.
Social tourism as a factor in the development of society is not given due attention, although in some regions of Russia targeted programs for the development of social tourism have been adopted and are being implemented. For example, the Law On the support of St. Petersburg tourism development in St. Petersburg [7]; the program Development of social tourism in the Republic of Bashkortostan (2012); the program Social tourism in the Astrakhan region, etc. The practice of developing social tourism in the regions marks the positive experience of this kind of recreation in Moscow, Rostov and Tyumen regions, Khabarovsk Territory and some other regions.
Consequently, due to the inability of the market to independently ensure its development, it is important for the state to participate as the main regulatory link of the entire tourism system.
Taking into account, that tourism is made up of components that span other policy sectors, tourism policies should not be viewed in isolation, but in a broader policy context. It is with leadership from politicians at the highest level, whose support can help ensure tourism impact of relevant policy initiatives.
The complexity of the task of tourism policy and effective management is determined by such qualitative indicator as level / degree of development, which is influenced not only by various factors, but also by the contradictory properties of tourism as a socio-economic system. The development of social and economic criteria and the increasing importance of social indicators of tourism, especially for social categories of the population, predetermines the role of social tourism, in which the social aspect is essential. As a result, tourism can more effectively demonstrate its value to politicians, society and the state as a whole.
To assess the effectiveness of management activities, we single out the functional and target approaches with priority to socio-economic functions [13] where the function of smoothing regional disproportions stands out. According to the target approach, we will form out the types of efficiency: economic and social [4]. Note that in the
Federal Target Program (FTP) the criteria and indicators of economic efficiency are indicated as the share of services in GDP / GRP, the number of jobs in the tourism industry, the number of tourists, etc.
As a social category, efficiency typifies the degree of satisfaction of the established (identified) needs of society through the production and sale of various goods and services [4].
In this logic, the indicators of social efficiency allow us to consider the strategy of tourism development, taking into account not only the resources in the region, but also the motivation of subjects as participants in tourism activities [6].
In this vein, the following socially significant results are important:
• increasing employment in tourism;
• activation (revival) of folk crafts and national cultural events;
• changes in the number of tourist arrivals;
• the state of the natural environment and tourist infrastructure.
A summarizing indicator of social efficiency can be the satisfaction of people's needs for rest and travel, health improvement, which transfers research into the field of sociology and psychology of travel motives.
The emphasis on the social component in the tourism state regulation specifies the role of public organizations that participate in the competition of socio-cultural projects for a grant from the President of Russia, in the development of requirements for social projects, as well as in the formalization of social indicators.
Governments can use a wide range of policy instruments to influence society and the economy, from incentive instruments (for example, direct support to companies) to instruments of power (such as regulations).
Strengthening the relationship between policymakers requires collaboration and information exchange (coordination), both vertical (between levels of government) and horizontal (between internal departments or departments of government), as well as making greater use of policy research and development information
based on real and actual data. At the same time, if planned and managed with an emphasis on sus-tainability, then tourism can make a significant contribution to the socio-economic development of territories. This includes inclusive growth, stimulating small businesses in agriculture, catering, developing and maintaining infrastructure, and promoting the cultural values of territories and local populations.
In the future, it is necessary to use positive experience, which has been proven in empirical studies. For example, the experience of such organizations as the All-Russian Society of Disabled People, the Russian Association for Social Tourism, non-state pension funds and other organizations [5], as well as the implementation of regional programs for the development of social tourism (as noted above).
Social tourism in the case of older people is especially relevant if we consider it as an integration of social and medical programs. In this case, it is worth paying attention to the fact that Governments will need to consider a number of alternatives to promote tourism for these social groups, especially through initiatives to promote active and healthy aging.
Likewise, in tourism, various policy options are available to support the integration of small and medium-sized enterprises into regional tourism centers. It is important to foster an innovative culture in companies and to support staff training (including information technology) that will allow travel agencies to better interact with businesses in the same ecosystem and potential customers.
It is crucial to emphasize social and cultural issues that can be solved with the help of tourism policy specifically for the youth environment [3]. Socially oriented tourist products for young people are relevant due to the emphasis on social and cultural components, namely, moral, spiritual and scientific and educational components of tourist programs. We believe that trips in groups and with the invitation of foreign students based on the principle of "zero economy" (tours without large special financial investments) are considered as a unifying factor and a means of forming
developing tourism in different regions of Russia.
While forming the concept of tourism management in a country / region, it is important to reflect in the state regional programs the role of the public sector, including the interaction of their active subjects. It is precisely the smoothing out of the contradictions between economic and social approaches in tourism management that is important in Russian regions, which have specificity and differentiation in many respects. But public recreational needs are largely determined by the socio-economic features and value attitudes of a given society associated with the assessment of its own development.
In the future, when developing a regulatory model it is important to reflect research on the behavior of tourists and the perception of people around (during the COVID19 period), who will be careful to try to avoid crowds, especially when it comes to family vacations, tourism for the elderly, disabled people, schoolchildren, etc. understand-ding the characteristics of the social groups of
tourists can help travel service providers and intermediaries who can stimulate tourism demand. The tourism sector must tailor its tourism products to the needs and requirements of tourists, with an emphasis on accommodating the preferences of members of diverse groups.
In the future, one of the key factors of quality tourist products for social groups will be the implementation of social tourism programs, in which a large role is given to initiatives in this area.
Conclusion
In conclusion, it is worth noting the importance of this topic, not only the role of state regulation of the tourism sector, but also the complexity of tourism as a systemic object, its specific features, both economic and social components, as well as the influence of sectoral and regional characteristics. A model of government regulation of tourism can be developed based on institutional and management aspects, as well as national and regional levels.
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