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A HUMAN RESOURCE
DEVELOPMENT STRATEGY FOR THE
TOURISM SECTOR
March 31st 2008
HRD Strategy for the Tourism Sector : 31 March 2008 1
Preface
It is generally perceived that gaps in skills development constrain the growth and development of
the tourism sector to the anticipated level of global competition. The human resource development
strategy for the sector is yet another step forward in streamlining and rationalizing skills
development in the sector so that it can add value to the sector’s growth and performance. The
skills audit for the sector was the first major breakthrough in gaining a fuller understanding of gaps
and issues in skills development. But the tourism sector is diverse and complex, and its
institutional arrangements for education and training are equally complex and fraught with gaps
and inconsistencies. While in many cases, the fundamentals are in place in terms of policies and
structures for excellence in education and training, these fundamentals have not cohered into a
sufficiently viable system for responding to the skills needs of the sector.
The HRD strategy seeks to start from where we are and build a more usable infrastructure for the
sustained supply of skills to the sector. Starting from where we are means that we must recognize
both our strengths and weaknesses, and thereby determine the best manner in which we could re-
engineer our structures, institutional arrangements and delivery processes to take advantage of
our strengths and find new ways of responding to the challenges we face. The HRD strategy is an
attempt to reflect on where we are in both the development and utilization of our human capital.
Having reflected, we identify a set of strategic interventions that could take us forward.
HRD here is not perceived as merely training; and, as a result, the HRD strategy is not intended as
a full documentation of what training is needed in the sector. Here, HRD is seen in its fullest sense
as all efforts we make to ensure that there is a constant supply of talent and skills to the sector to
enable the sector’s workplace responsibilities to be undertaken with the level of proficiency and
efficiency that would enhance the sector’s performance and global competitiveness. In this sense,
the HRD strategy embodies considerations for improving education and training, as well as
considerations for improving and streamlining the structures through which education and training
is rendered. In essence the strategy is concerned, not only with the outcome of having a sustained
supply of skilled people for the sector, but with having effective and efficient structures through
which such skills are produced and properly utilized.
As presented here, the HRD strategy is both a documentation and reflection upon the current
status of the sector and a roadmap and guide for ensuring the contribution of HRD to a
transformed sector with significantly enhanced economic performance. But the strategy is only the
beginning. Ultimately the HRD strategy is the catalyst for a process of transformation where
stakeholders could revisit their roles and responsibilities and reconfigure themselves in new ways
to be more effective in building and utilizing the human capital for the sector.
HRD Strategy for the Tourism Sector : 31 March 2008 2
TABLE OF CONTENTS
PREFACE....................................................................................................................................................................2
TABLE OF CONTENTS ...............................................................................................................................................3
LIST OF TABLES ........................................................................................................................................................5
LIST OF FIGURES.......................................................................................................................................................5
LIST OF GRAPHS .......................................................................................................................................................5
ACRONYMS................................................................................................................................................................6
1.1 PURPOSE & OBJECTIVES .................................................................................................................................9
1.2 WHY AN HRD STRATEGY IN TOURISM ..............................................................................................................10
1.3 APPROACH AND METHODOLOGY ......................................................................................................................11
1.4 LIMITATIONS .................................................................................................................................................15
1.5 CORE CONSIDERATIONS FOR STRATEGY DEVELOPMENT .....................................................................................16
1.6 KEY DEFINITIONS ..........................................................................................................................................21
1.7 ORGANIZATION OF THE DOCUMENT ..................................................................................................................22
2. PROFILE OF THE TOURISM SECTOR ...........................................................................................................25
2.1 INTRODUCTION AND PURPOSE .........................................................................................................................25
2.2 TOURISM AND TOURISM PRODUCTS?................................................................................................................25
2.3 THE PERFORMANCE OF THE SECTOR................................................................................................................26
2.4 THE STRUCTURE OF TOURISM IN SOUTH AFRICA ................................................................................................30
2.5 THE EDUCATIONAL AND SKILLS PROFILE OF EMPLOYEES IN THE SECTOR ...............................................................34
2.6 THE GEOGRAPHIC DISTRIBUTION OF SERVICE CAPACITY .....................................................................................36
2.7 THE GEOGRAPHIC DISTRIBUTION OF GOVERNMENT INFRASTRUCTURE ...................................................................36
2.8 THE TRANSPORTATION INFRASTRUCTURE TO PROMOTE ACCESSIBILITY .................................................................36
2.9 VISION AND STRATEGY IN TOURISM ..................................................................................................................36
2.10 ISSUES AND TRENDS IN THE SECTOR................................................................................................................39
3. REFLECTION ON HRD FOR THE TOURISM SECTOR ...................................................................................40
3.1 INTRODUCTION AND PURPOSE .........................................................................................................................40
3.2 HUMAN CAPITAL AND TOURISM........................................................................................................................40
3.3 THE CONCEPT OF HRD FOR THE TOURISM SECTOR ...........................................................................................40
3.4 FUNDAMENTAL REQUIREMENTS FOR THE PURSUIT OF AN HRD STRATEGY .............................................................41
3.5 CRITICAL QUESTIONS TO BE ANSWERED IN CRAFTING AND HRD STRATEGY FOR THE SECTOR ..................................42
4. THE POLICY AND STRATEGIC FRAMEWORK FOR HRD..............................................................................43
4.1 INTRODUCTION AND PURPOSE .........................................................................................................................43
4.2 CONCEPTUALIZING THE FRAMEWORK................................................................................................................43
4.2.1 Development Imperatives.................................................................................................................43
4.2.2 Economic and Social Policy Frameworks..........................................................................................44
4.2.3 The Public Regulatory Framework....................................................................................................44
4.2.4 The Public Policy and Regulatory Framework Governing Tourism .....................................................46
5. AN OVERVIEW OF HUMAN CAPITAL DYNAMICS IN THE TOURISM SECTOR.............................................48
5.1 INTRODUCTION AND PURPOSE .........................................................................................................................48
5.1.1 Demographics .................................................................................................................................49
5.1.2 Economic ........................................................................................................................................50
5.1.3 Educational......................................................................................................................................51
5.1.4 Employee Wellness Management.....................................................................................................52
5.1.5 Immigration, Emigration and Labour Mobility.....................................................................................52
5.1.6 Planning and Management...............................................................................................................54
5.1.7 Social Factors..................................................................................................................................56
5.1.8 Industry Practice ..............................................................................................................................57
5.1.9 Policy Leadership and Governance ..................................................................................................58
5.1.10 History and Tradition ........................................................................................................................59
5.1.11 Conclusion.......................................................................................................................................60
6. THE CONTEXT OF HRD IN TOURISM ............................................................................................................61
6.1 INTRODUCTION AND PURPOSE .........................................................................................................................61
6.2 STRUCTURE OF HRD IN THE TOURISM SECTOR .................................................................................................61
6.2.1 The Policy Framework .....................................................................................................................63
6.2.2 The Spheres of Government ............................................................................................................63
6.2.3 Stakeholders and Private Bodies ......................................................................................................64
HRD Strategy for the Tourism Sector : 31 March 2008 3
6.2.4 Frameworks for Coordination and Intergovernmental Relations .........................................................64
6.2.5 The Community - Frontline of Delivery ..............................................................................................64
6.3 THE SUPPLY AND AVAILABILITY OF SKILLS .........................................................................................................65
6.4 SKILLS DEMAND FOR THE SECTOR ...................................................................................................................66
6.5 INFRASTRUCTURE FOR DELIVERY .....................................................................................................................70
6.6 CONCLUSION ................................................................................................................................................72
7. STRATEGIC IMPERATIVES FOR HRD IN TOURISM ......................................................................................74
7.1 INTRODUCTION AND PURPOSE .........................................................................................................................74
8. A CONCEPTUAL FRAMEWORK FOR HRD IN THE TOURISM SECTOR........................................................82
8.1 INTRODUCTION AND PURPOSE .........................................................................................................................82
8.2 KEY COMPONENTS OF THE CONCEPTUAL FRAMEWORK .......................................................................................82
8.2.1 A Vision for HRD in the Tourism Sector...................................................................................................85
8.2.2 A Comprehensive Programme of Interventions........................................................................................85
8.2.3 Core Principles for Informing, Guiding and Strengthening Strategic Interventions ...................................110
9. A PLAN OF ACTION FOR IMPLEMENTING THE HRD STRATEGY FOR THE TOURISM SECTOR ..............116
9.1 INTRODUCTION AND PURPOSE .......................................................................................................................116
9.2 THE STRUCTURE FOR PROJECT IMPLEMENTATION ............................................................................................116
9.3 THE PROJECT FRAMEWORK ..........................................................................................................................118
9.4 BASIC CONSIDERATIONS FOR THE DEVELOPMENT OF PROJECTS .........................................................................126
10. PROMOTING SUCCESSFUL IMPLEMENTATION.........................................................................................143
9.1 INTRODUCTION AND PURPOSE .......................................................................................................................143
APPENDIX A: LIST OF DOCUMENTS REVIEWED..................................................................................................145
APPENDIX B: LIST OF PARTICIPANTS INTERVIEWED .........................................................................................146
APPENDIX C: INDUSTRIAL COMPONENTS OF THE TOURISM SUB-SECTORS ...................................................147
HRD Strategy for the Tourism Sector : 31 March 2008 4
LIST OF TABLES
Table 1: CRITICAL COMPONENTS OF THE HRD STRATEGY DEVELOPMENT PROCESS ......................................13
Table 2: SELECTED FEATURES FO TOURISM ATTRACTIVENESS IN SOUTH AFRICA ...........................................27
Table 3 ANALYSIS OF GROWTH OF TOURISM CONTRIBUTION TO THE ECONOMY.............................................30
Table 4: ESTIMATION OF SIZE OF SUB-SECTORS IN THE TOURISM INDUSTRY ...................................................31
Table 5: VARIATIONS IN ESTIMATIONS OF EMPLOYERS & EMPLOYEES..............................................................32
Table 6: SMME ..........................................................................................................................................................32
Table 7: GENDER AND RACE PROFILE OF EMPLOYEES .......................................................................................33
Table 8: EMPLOYEES BY OCCUPATIONAL LEVEL & RACE ....................................................................................33
Table 9: SUMMARY OF DEMOGRAPHIC BREAKDOWN OF THETA WORKFORCE .................................................34
Table 10: SENIOR MANAGER/OFFICIAL PROFILE...................................................................................................34
Table 11: EMPLOYEE QUALIFICATION LEVEL ........................................................................................................35
Table 12: EDUCATIONAL LEVEL ACROSS SUB-SECTORS .....................................................................................35
Table 13: BUSINESS TOURISM.................................................................................................................................38
Table 14: STRATEGIC IMPLICATIONS FOR HRD EMERGING FROM THE POLICY AND STRATEGIC FRAMEWORK
FOR THE SECTOR .........................................................................................................................................47
Table 15: LEARNERS SUPPLIED TO SECTOR.........................................................................................................65
Table 16: NUMBER OF LEARNERS ENROLLED, COMPLETED AND EMPLOYED....................................................66
Table 17: CRITICAL SKILLS NEEDED.......................................................................................................................67
Table 18: GENERIC SKILLS NEEDED.......................................................................................................................68
Table 19: SKILLS GAP - HARD TO FILL POSITIONS ................................................................................................69
Table 20: TRAINING PROVIDER STATUS PER PROVINCE AND PER CHAMBER....................................................71
Table 21: TRAINING DEMAND (EMPLOYMENT) VS PROVISION (TRAINING PROVIDERS).....................................71
Table 22: RATIONALE & INTENDED OUTCOMES FOR CAPACITY DEVELOPMENT ...............................................87
Table 23: CONCEPTUAL FRAMEWORK - OBJECTIVES & SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR:
CAPACITY DEVELOPMENT............................................................................................................................89
Table 24: RATIONALE AND INTENDED OUTCOMES FOR ORGANIZATIONAL SUPPORT INITIATIVES ..................93
Table 25: OBJECTIVES & SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR: ORGANIZATIONAL SUPPORT
INITIATIVES....................................................................................................................................................95
Table 26: SUMMARY OF RATIONALE AND INTENDED OUTCOMES .....................................................................100
Table 27: OBJECTIVES AND SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR........................................102
Table 28: SUMMARY OF RATIONALE AND INTENDED OUTCOMES .....................................................................107
Table 29: OBJECTIVES AND SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR........................................109
Table 30: TRAINING AND MANAGEMENT TASK FORCE INTERPRETATION OF PROJECTS WITH ASSOCIATED
CONTENT AND FOCUS AREAS ...................................................................................................................121
Table 31: GOVERNANCE & ADMINISTRATION TASK FORCE INTERPRETATION OF PROJECTS WITH
ASSOCIATED CONTENT AND FOCUS AREAS ............................................................................................123
Table 32: PROMOTION AND ADVOCACY TASK FORCE INTERPRETATION OF PROJECTS WITH ASSOCIATED
CONTENT AND FOCUS AREAS ...................................................................................................................125
Table 33: SUMMARY OF CONTENT OF PROJECT SPECIFICATION SHEETS .......................................................126
LIST OF FIGURES
Figure 1: STRUCTURE FOR ANALYSIS TO DERIVE HRD STRATEGIC PROVISIONS..............................................12
Figure 2: THE LEGAL AND POLICY FRAMEWORK AFFECTING HRD IN THE TOURISM SECTOR ..........................45
Figure 3: KEY ELEMENTS OF THE STRUCTURE OF HUMAN RESOURCE DEVELOPMENT IN THE SECTOR........62
Figure 5: STRATEGIC FOCUS ON CAPACITY DEVELOPMENT INITIATIVES...........................................................86
Figure 6: STRATEGIC FOCUS ON ORGANIZATIONAL SUPPORT INITIATIVES .......................................................92
Figure 7: STRATEGIC FOCUS ON GOVERNANCE...................................................................................................99
Figure 8: LINKAGE TO ECONOMIC GROWTH & DEVELOPMENT INITIATIVES......................................................104
Figure 9: RECOMMENDED STRUCTURE FOR PROJECT IMPLEMENTATION.......................................................117
Figure 10: PROJECT FRAMEWORK FOR IMPLEMENTING THE HRD STRATEGY FOR THE TOURISM SECTOR .118
LIST OF GRAPHS
Graph 1: EVOLUTION OF INTERNATIONAL TOURISM TO SOUTH AFRICA.............................................................28
Graph 2: TRENDS IN CONTRIBUTION TO GDP 1990 TO 2006.................................................................................28
Graph 3: TRENDS IN CONTRIBUTION TO EMPLOYMENT 1990 to 2006 ..................................................................29
Graph 4: CONTRIBUTION OF TOTAL TOURISM EXPENDITURE TO TOTAL EMPLOYMENT...................................29
Graph 5: ESTIMATED NUMBER OF JOBS DUE TO TOURISM EXPENDITURE ........................................................29
HRD Strategy for the Tourism Sector : 31 March 2008 5
Acronyms
ABET Adult Basic Education and Training
APP Annual Performance Plan
ASGISA Accelerated and Shared Growth Initiative for South Africa
BEE Black Economic Empowerment
DEAT Department of Economic Affairs & Tourism
DOL Department of Labour
DTI Department of Trade & Industry
EPWP Expanded Public Works Programme
GCP Global Competitiveness Programme
GDP Gross Domestic Product
HRD Human Resource Development
HRM Human Resource Management
IDP Integrated Development Plan
JIPSA Joint Initiative on Priority Skills Acquisition
LED Local Economic Development
MINMEC Committee of Members of Executive Councils responsible for
tourism in the provinces and the Minister and Deputy-Minister of
Environmental Affairs and Tourism in the central government
MIPTEC Committee of Provincial Technical Executives responsible for
tourism in the provinces and the Director General and Deputy Director
General of Environmental Affairs and Tourism in the central government
NQF National Qualification Framework
NSDS National Skills Development Strategy
NTHRDS National Tourism Human Resource Development Strategy
PGDP Provincial Growth and Development Plan
RPL Recognition of Prior Learning
SADC South African Development Community
SAQA South African Qualification Authority
SDA Skills Development Act
SGB School Governing Body
SMME Small Medium and Micro Enterprises
SSP Sector Skills Plan
THETA Tourism, Hospitality & Sport Education & Training Authority
WSP Workplace Skills Plan
WTO World Trade Organisation
HRD Strategy for the Tourism Sector : 31 March 2008 6
1. BACKGROUND AND INTRODUCTION
Globally, tourism has earned its stature among other economic sectors as being significant to
the economic and social welfare of many nations. The travel and tourism industry has grown
significantly over the years, and has become the world’s largest industry and a highly
competitive field of economic activity. The rise to stature of tourism internationally is not
unexpected. When properly managed, it has significant benefits beyond the government tax
revenues it generates. As noted in the 1996 Tourism White Paper, it is the world’s largest
generation of jobs; it is labour intensive, with more jobs being created per unit of capital; it
employs a multiplicity of skills; it creates entrepreneurial opportunities; it brings development to
rural areas; and, among others, it has a significant multiplier effect and spill over benefits to
other sectors of the economy. Beyond its value as a foreign exchange earner, tourism brings
significant impetus to the development agenda, and it is a great marketing vehicle for a nation’s
taste, its products and its people.
It is understandable, therefore, that tourism is placed as a highly prioritized sector on South
Africa’s transformation and development agenda. South African Tourism is perceived as a
major economic sector of enterprise and of national wealth creation. This has not always been
the case. South African tourism has grown significantly since 1993. It has grown from 3 million
tourists in 1993 to more than 8.4 million tourists in 2006; and from 5% contribution to GDP, to a
contribution of more than 8% within the same period. South Africa has always been perceived
as having a huge potential for tourism. This potential lies in its accessible wild life, its varied
and impressive scenery, unspoiled wilderness areas, diverse cultures, and, among others, its
well developed infrastructure and virtually unlimited opportunities for special interest activities.
Among such activities are whale watching and wild water rafting; hiking, bird watching and
bush survival; and, hunting, deep sea fishing and deep sea diving. This is among extensive
opportunities for business tourism. South Africa is therefore unrivalled in its diversity, and in its
potential for global competitiveness in the industry. But, while there has been growth over the
last decade, and while prospects for the future are still outstanding, South Africa is unable to
live up to its well lauded potential as a tourism destination. Unfortunately, successful tourism is
not about the tourism assets and products a country possesses, but about the manner in which
these assets are marketed, managed and made to add value. The revealing statement in the
1996 Tourism White Paper is still relevant today “ … competitive advantage (in tourism), is no
longer natural, but increasingly man-made, driven by science, technology information and
innovation”.
Many factors have been cited for constraining the development and “break through” of the
South African Tourism Enterprise. Among them are slow investment and inadequate
resourcing of the sector, limited capacity in local communities to mange tourism in local areas
and the negative image created by crime. However, the most commonly cited reason over the
last decade for the under performance of the sector has been the inadequacy of tourism
education and training, and the resulting lack of the appropriate range and level of skills to
effectively manage and run the sector. In spite of the level of investment in skills development,
the lack of appropriately qualified and capable human resources for the sector is the primary
factor which limits its rise to the level attainment anticipated. The production of skilled people
cannot keep up with the growth of the sector.
HRD Strategy for the Tourism Sector : 31 March 2008 7
This is reason for concern. While the lag in the production of skills is said to limit economic
performance of South Africa as a whole, its effect on the tourism sector may be even more
limiting. Competitiveness in tourism comes through its people. People represent part of the
tourism product, and “visitor value”, it is noted, is determined through interaction with people.
When people in the sector lack skills, and when the sector cannot acquire and sustain the
skilled people it needs, then the consequent under-performance of the industry has a ripple
effect into other sectors and, as a result, it drags the development agenda as a whole. For this,
and other reasons, the government’s accelerated and shared growth initiative for South Africa
has identified tourism as an “immediate high priority sector”.
But addressing this skills deficit is not an easy matter. The tourism sector is complex; its skills
needs are diverse. The sector is sensitive to the economic dynamics locally and globally, and
historical issues have laid their imprint on the manner in which the sector operates.
Performance in skills development is affected by the fragmented and unarticulated nature of
the sector. It is constrained by the quality of basic education received by entrants into the
industry. Quality and standards in training are poorly managed; the quality of trainers varies;
the content and quality of materials vary; the standards in facilities and equipment are not
controlled; and, among others, poor links with the industry and private enterprise limits the
relevance and appropriateness of training. Even many of those who are trained are labeled as
being without the capacity to perform. Building skills for the sector is not solely about getting
people trained; it is about reconstituting a full and viable infrastructure for the sustained supply
and maintenance of appropriately qualified people. It is about policy as well as courseware;
governance structures as well as trained teachers; it is about the capacity to lead and manage
as well as the capacity to train and prepare talent to perform. While the calculus of managing
supply and demand of skills in the sector is critical to its performance, the problem of skills
development will not be solved by our knowledge of skills gaps alone. The entire infrastructure
for producing skilled people must be reconstructed – from the manner in which the system is
managed, to the manner in which it produces and sustains skilled people.
This brings even more complexity to the challenge of skills development in tourism. The sector
is government-led, private sector-driven and community-based. A wide array of government
entities are involved in the sector. Their efforts are sometimes uncoordinated and duplicated or
in conflict. The private sector is not homogeneous; it is diverse, fragmented and relatively
independent in its thrust to acquire the right skills to deliver. Communities are relatively
dislodged from the strategic policy thrust of the country, and most are without access to the
opportunities which will bring the capacity and competence to manage and benefit from their
own tourism assets. Success, therefore, depends on the extent to which a fragmented sector
can be streamlined, and the extent to which collaboration and partnerships can be key features
in the reconstruction of a viable skills development infrastructure that will accelerate the pace at
which the tourism enterprise can meets its potential.
It is in this context that we set the task of preparing and presenting a Human Resource
Development Strategy for the sector. The HRD strategy is but one of the instruments that will
be set in place to assist in building the human capital needed to grow and sustain the sector’s
performance. It is an important instrument.
The HRD strategy must craft the solution to the skills development dilemma, and must serve as
the master plan for the reconstitution of an infrastructure that will build and sustain human
HRD Strategy for the Tourism Sector : 31 March 2008 8
capital. Because of this function, the structure, content and presentation of the strategy must
demonstrate its capacity to be relevant and appropriate to the context and circumstances of the
sector. This chapter seeks to lay out the purpose, approach and core considerations which
have framed the strategy, and it seeks to outline the manner in which the presentation of the
strategy will unfold.
The following items will be discussed in this chapter:
1. Purpose and Objectives
2. Why an HRD Strategy in Tourism
3. Approach and Methodology
4. Limitations
5. Core Considerations for Strategy Development
6. Key Definitions
7. Assumptions
8. Organization of the Document
These sub-sections follow in the respective order.
1.1 Purpose & Objectives
Purpose
The purpose of this document is to present an HRD strategy for the tourism sector. This
HRD strategy should essentially be a master plan for human capital formation in the sector.
In this regard, the strategy is intended to outline a structure of strategic interventions which
could assist in rectifying the skills shortage dilemma currently experienced; but, moreso, the
strategy is intended to put in place an organizational infrastructure and a set of associated
projects which will lead to the sustained supply of high quality human resources to the
sector.
The sector is not intended as an immediate solution because the issues faced are so
complex, and the structures and cultures to be changed so entrenched. The strategy is
therefore a roadmap to be negotiated, and should serve as the basis for stakeholder
engagements and a guide to incremental action in the sector. It is a structured statement of
what it takes to be “where we want to be” in skills development. But the interventions
presented are not new. As such, the strategy is essentially an expression of the collective
views and statements which have been shared over the last two decades regarding what
will be required to create a structure for human capital formation which can add value to
tourism growth. Here, the HRD strategy taps into the rich documentation already available
in the sector in order to reconstruct and plot a strategic path for human capital formation
that is comprehensive, clear, focused and responsive to the human resource challenges in
the sector which constrains growth and competitive positioning.
Objectives
In developing the strategy, several intermediate objectives were to be attained. In
response to and following from these objectives, the document is structured in a manner
which seeks to set a foundation and build a case for the strategic options that are chosen.
HRD Strategy for the Tourism Sector : 31 March 2008 9
In meeting the purpose as outlined above, the following objectives are met in the respective
chapters as outlined.
i. To review the structure and strategic focus of the tourism industry so as to
ensure that the HRD strategy is responsive to the strategic priorities of the
sector.
ii. To assess the status of HRD in the tourism sector in order to determine the
administrative circumstances and needs of THRD.
iii. To identify strategic focus areas for HRD in the tourism sector that are
responsive to the tourism growth strategy and the overall strategic development
framework of South Africa.
iv. Outline a comprehensive tourism human resource development strategy which
could establish an agenda for resolving the skills development crisis; and
creating over the next five years an environment for sustainable human capital
formation.
v. To present an action plan and an implementation guide for the adoption and roll
out of the strategy in the sector.
1.2 Why an HRD Strategy in Tourism
People are fundamental to the success of public and private organizations and
enterprises. Strategic priorities cannot be attained without people. In this respect, an
HRD strategy which seeks to ensure that people are made capable to undertake their
responsibilities is fundamental to the success of any enterprise; and, an HRD strategy
which seeks to ensure a sustainable supply of talent to the organization is, in a
competitive environment, an absolute necessity. Beyond this, however, an HRD
strategy in tourism is even more critical in light of the inability of the sector to generate
and sustain the human capital it needs. It is a generally understood fact that skills
development constrains the growth of the tourism sector; or, alternatively, that the skills
development is unable to keep pace with the growth in tourism. But this claim is not
new. According to the recently completed Skills Audit for the sector, “skills issues
identified in the 1990s have not been adequately addressed as they are the same ones
that are typically raised today”. In the Tourism White Paper of 1996, skills development
was identified as one of the factors which constrained growth. In the Tourism Growth
and Development Strategy 2008-2010, skills development is still singled out as one of
the key issues faced in seeking to make the sector globally competitive. Even
references to the lack of a service culture and ethos is South African tourism is not new.
These too stem back to the early 1990s, and this critical and lingering gap can also be
classified as a skills development shortfall.
An HRD strategy for the sector seeks to put in place the structures, systems and
interventions which will ensure that skills development ceases to be a hurdle in the path
of tourism growth. In this respect, an HRD strategy for tourism is essential.
HRD Strategy for the Tourism Sector : 31 March 2008 10
But, is an HRD strategy still needed in light of all the research, documentation and
recommendations which exist regarding skills development in the sector? Here, the
persisting need for an HRD strategy results from the existing disarray and
disorganization of the information which currently exists. While some extensive and
thorough research has been done in the field over the years, and while the recent skills
audit represents a significant milestone in the progress of the sector toward effective
management of its human capital, the recommendations which have emerged from
these strategic documents, although useful, do not in sum represent or constitute a
strategy. A strategy is a more comprehensive and integrated plan of action which
addresses, in a more integrated manner, all the factors which constrain human capital
development and utilization. A strategy plots a properly calculated course of action for
building a more effective skills development infrastructure for the sector. In this regard,
a strategy does not exist and crafting one is perceived as a matter of urgency.
1.3 Approach and Methodology
The approach to the preparation of a human resource development strategy is both
responsive to the circumstances and obligations of DEAT, and participative in creating
an appropriate supportive environment among stakeholders. In this regard, the
NTHRDS was crafted in a manner which sought to respond to the following:
a. Stakeholder perceptions and inclinations
b. The business priorities of the various components of the sector
c. The strategic frameworks for the growth of the sector
d. The policy frameworks which govern activities in the sector, and
e. The challenges which are currently encountered in promoting, administering and
delivering HRD services.
In order to ensure that appropriate content is derived for the preparation of the HRD
strategy, the strategy development process was framed in a manner that would be
responsive to the HRD strategy for the public service and relevant to the circumstances
faced in HRD in the sector. This is represented in Figure 1. The figure seeks to
conceptualize the approach used; and it seeks to outline the manner in which strategic
priorities for HRD were derived. Within the framework of this conceptual structure,
there were four critical steps in the preparation of the strategy. These are outlined
below and are presented in Table 1. Each component of the approach is briefly
discussed below:
a. Preliminary Desk Review
b. Data Collection and Analysis
c. Strategic Focus Areas
d. HRD Strategy Development
HRD Strategy for the Tourism Sector : 31 March 2008 11
Figure 1: STRUCTURE FOR ANALYSIS TO DERIVE HRD STRATEGIC PROVISIONS
CAPACITY STRUCTURAL GOVERNANCE ECONOMIC GROWTH &
DEVELOPMENT SUPPORT RESPONSES DEVELOPMENT
RESPONSES RESPONSES RESPONSES
Business
Priorities
Delivery
Constraints or
Issues
Strategic
Opportunities
Strategic Strategic Strategic Strategic
Priorities Priorities Priorities Priorities
The outcome of each step is presented in Table 1 and more details of each component of
the methodology are presented in the sections to follow. But there are core principles to be
observed in the process of developing the strategy. These principles can serve as a guide
in both the design of the strategy and in ensuring successful implementation. These
principles are addressed in the last section of this chapter.
HRD Strategy for the Tourism Sector : 31 March 2008 12
Table 1: CRITICAL COMPONENTS OF THE HRD STRATEGY DEVELOPMENT PROCESS
COMPONENT RATIONALE OUTCOME
1. Preliminary Desk This was the first critical step of the • A report was presented on
Review process. There is extensive context and circumstances
documentation on tourism, and many noting strategic implications for
reports and references on HRD in the HRD and preliminary strategic
sector. This documented information priorities. These were used as
was the basis upon which a full set of the basis for interviews.
issues and strategic priorities were
derived.
2. Empirical Data The data collected from the • A detailed set of information was
Collection and Existing documentation fell short of specifying a generated on constraints, issues
Analysis full set of options and alternatives for and strategic options for HRD.
building a viable HRD infrastructure for This information was used as
the sector. Though much statistical the basis for deriving strategic
information was available and themes.
importance of the issues confronted
and the constraints faced, little cogent
information was available on the
strategic options to be applied. In
addition to this, strategy implementation
is easier if key stakeholders, as the
storehouse of knowledge, are able to
share the body of wisdom they
possess.
3. Derivation, Analysis Based on the analysis noted above, • A comprehensive set of
and Validation of strategic themes or focus areas for strategic themes, focus areas
Strategic Focus Areas HRD were derived. These themes were and provisions for HRD
used as the basis upon which the
strategic provisions for HRD were
specified. These strategic provisions
represent the core of the strategy to be
presented herein.
4. Preparation of a On the basis of these strategic focus • A comprehensive Tourism
Comprehensive HRD areas the NTHRDS was developed. Human Resource Development
Strategy for the Strategy.
Tourism Sector
HRD Strategy for the Tourism Sector : 31 March 2008 13
Preliminary Desk Review
The desk review explored structural and contextual issues in the sector which affect the
viability of human capital development and utilization. The review covered policy
frameworks and organizational arrangements, and it included the review of statistical
information, exemplary practices, the findings of various research reports and related
strategic documents such as the Tourism Growth Strategy, the THETA Sector Skills Plan,
the Skills Audit and Research Report prepared by the National Business Initiative, the
Department’s Strategic Plan and APP, and relevant cabinet memoranda and conference
reports as available.
A formal content analysis was conducted on these documents in order to isolate business
priorities, identify strategic opportunities and list existing HRD and related constraints and
challenges in the sector. For each of these, an assessment was made of the relevant
strategic priorities for HRD. The value here is twofold: first, to develop a comprehensive
list of possible strategic interventions in HRD; and secondly, to develop a list of questions
or issues which could be framed in an instrument or interview schedule in order to solicit
ideas from key stakeholders. The documents reviewed are listed in Appendix A.
Empirical Data Collection and Analysis
Based on the findings of the research review and the resulting analysis, data was collected
from key stakeholders on HRD issues faced in the sector and possible strategic
interventions which could be applied to remedy the constraints faced. Interviews were
open-ended in nature, and sought to validate perceptions derived from the literature, clarify
issues that were not sufficiently interrogated and seek input regarding the strategic options
that would be appropriate for the designated stakeholder group. The respondents are listed
in Appendix B.
Analysis and Presentation of Strategic Themes
The research review and interview process generated a wide variety of strategic options,
and a host of good ideas which could be considered for adoption. The strategy to be
developed, however, was not about a diverse array of good ideas that could be placed into
practice, but about the manner in which these ideas are categorized, restructured and
reframed so that they can be crafted into a cohesive set of strategic priorities which could
be feasibly adopted. The strategic themes were listed, described and clustered. The
applicability of these themes to the various components of the sector, or to various
stakeholder groups, was noted. Finally, these strategic themes were re-clustered and
framed into a conceptual framework which could guide intervention in the sector. Each
critical component of the framework was specified in greater detail into objectives and sub-
objectives. Finally, a team of experts revisited the findings of the research review to
determine the degree to which the strategic framework was responsive to the conclusions
made.
Preparation of the HRD Strategy
On the basis of the research review and the content in the conceptual framework, a
logistical framework was set up to determine the manner in which the text of the HRDS
should unfold. Here, the key consideration was that of structuring the flow of the key
components and the text of the strategy so that its presentation would reveal the line of
logic which resulted in the strategic options selected. It is on this basis that the table of
HRD Strategy for the Tourism Sector : 31 March 2008 14
contents was prepared, and it was through this analysis that the evidence collected was
assembled into a comprehensive, cohesive and integrated outline and presentation of the
strategy. This document represents the results of this effort.
1.4 Limitations
At the outset, the limitations of the study should be highlighted in order to present a
realistic view of the manner in which the effort was undertaken. The constraints faced did
have some effect on the outcome of the assignment. These constraints are noted and
described briefly below.
• Time
The major constrain on the project was the time allowed for the completion of the
strategy. The strategy had to be completed within a period of 3 months. Because of
the scope and complexity of the sector, the depth of the issues and the time constraints
faced by respondents, addressing the full scope of issues faced and properly validating
findings represented a challenge. The effort was rushed because of its urgency to the
sector, and because it had to be aligned with other plans of DEAT and THETA. The
wide scope of information also presented a challenge in terms of the time available to
review all the documents collected. Fortunately, however, the availability of
documented information partly compensated for the limited time available.
• Previous Interventions
There have been many studies conducted in the sector in the recent past – the most
recent and notable being the skills audit for the sector. Concerns were raised initially
regarding respondent fatigue because of the many contacts made to the same people
for what was perceived to be the same information. As a result of this, there may have
been some respondents whom we could not meet. In spite of this, however, the
respondents who participated in the study were extremely well informed, eager to
participate and very helpful in terms of the information provided. These respondents
generally felt that the exercise is long overdue and eagerly looked forward to the
results.
• Sampling
The sample for the study, unlike that of recent studies conducted in the sector was not a
randomly selected statistically crafted sample where statistical significance could be
used as the basis for generalization. The sample was a key informant’s sample which
was used as part of a qualitative approach to derive strategic options. Through the
process of triangulation and expert verification the finding is definable as being valid
and true. The findings of the research review, however, are consistent with the
evidence gained from existing documents. In spite of this, the geographic and sub-
sectional representativity of the evidence could be questioned. In this respect, any
claims made are supported by documented evidence only.
There is a serious paucity of information for decision-making in the sector. The
available information was generally of poor quality and sometimes incomplete. The
estimations and projections made on supply and demand, for instance, were fraught
with technical errors and untested assumptions. We can at best make general
HRD Strategy for the Tourism Sector : 31 March 2008 15
judgements based on the evidence available. Notwithstanding, the available
information was used. Consistency in the findings reported may well indicate that the
data available points in the right direction.
• Inability to Explore Sub-Sector Differences
The study did not explore sub-sector differences, and has not derived sub-sectorally
targeted strategic recommendations. Time was not enough to explore the sub-sectional
differences which do exist. However, the findings and recommendations made in the
strategy, though general and targeted to a higher policy and strategic level, are
pertinent to the sector as a whole. Implementers are asked to explore sub-sectoral
implications for each of the recommendations made.
• Scope of Documentation
Tourism is an important and dynamic sector; highly competitive, potentially very
lucrative and very critical to the economic development strategy of South Africa. As a
result of this, several critical interventions have been made in tourism and much
documentation is available regarding these interventions. There is a wide scope of
strategic documents which pertain to tourism generally (with HRD implications), and
much is written about the plight of HRD in the sector. In this respect, there was a lot to
read, review and analyze. This was time consuming. In some cases, however, the
sheer scope of information contributed more to the fragmentation of HRD in the sector
than to resolving the issues and creating lines of progress which could be explored.
1.5 Core Considerations for Strategy Development
As the study unfolded, it became clear that many issues, if not properly handled, could
affect the course taken, the strategic options selected, and eventually the outcomes of the
study. In this respect, critical choices had to be made so as to keep perspectives and
choices in balance, and set the HRD strategy on the right course. It is important to
highlight some of these choices at the outset, so that the pitch, tone and outcomes of the
strategy could be placed in the appropriate context. The core considerations are noted
and briefly addressed below.
• The Tourism Sector
Many terms are used to refer to the boundaries which define the HRD strategy – the
tourism sector, tourism industry, tourism enterprise. It is important, however, to clearly
delineate the target audience from the HRD strategy. By the tourism sector, the
strategy is directed to three of the sub-sectors of tourism: Hospitality; Travel and
Tourism; and Conservation and Tourism Guiding. In this respect, two sub-sectors
which are within the mandate of the THETA are excluded – Sports, Recreation and
Fitness as well as Gaming and Lotteries. This decision was made at the outset of the
project in order to limit the study to the sub-sectors which were within the strategic and
administrative control and authority of DEAT. It was perceived that a broader focus
would raise complications in agreeing on targets and in managing implementation.
HRD Strategy for the Tourism Sector : 31 March 2008 16
• Meaning of HRD
Human resource development has a different meaning to different audiences. Some
take a narrow perspective of direct training and skills development while others see
HRD as the internal organizational and policy infrastructure that results in trained
individuals. The perspective employed here is the latter. This is addressed in more
detailed in chapter 3.
• Complexity of the Sector
The tourism sector is diverse in terms of the type of business enterprises, the structure
and approaches to training, the quality of training programmes and training providers,
and, among others, the number of public and private entities which influence training
and performance in the sector. In terms of skills development, for instance, THETA
represents and governs a set of 5 diverse and inherently different sub-sectors. As a
result, the term “tourism sector” may seem more homogeneous than it really is because
of the vast differences between them. Findings in one sub-sector cannot be readily
generalized to the other; and, similarly solutions which may be appropriate for one may
not be appropriate to the other.
• A Perspective on Strategy
There are different perceptions in the field about what constitutes a strategy, and
therefore differences about what should constitute a tourism strategy for HRD. Strategy
is a set course of action to be taken in respect to a specific circumstance which has
been assessed. It is the manner in which solutions to problems which exit are crafted
into an integrated programme of action. The strategic focus pursued here is that of
crafting an integrated course of action for HRD in response to the definitions which exist
on the management and decline of skills development in the sector.
• Basic Assumptions
The project was undertaken with the anticipation that expectations in respect to
outcomes are clear. It was soon necessary, however, to clarify expectations as the
project progressed. In like manner, there are a few other expectations that are
assumptions only. To the extent that these assumptions are not true, the viability of the
approach and the strategy will be compromised. The assumptions made are outlined
below.
a. It is assumed that the expectations about what a strategy should produce are the
same among stakeholders. A strategy in this sense is not a list of
recommendations or actions but a comprehensive and integrated set of
interventions which are programmed to correct the deficiencies which undermine
skills development in the sector.
b. It is assumed that each is willing to play a part in the reconstruction of the skills
development infrastructure for the sector.
c. It is assumed that the issues which have been constantly raised regarding skills
development in the sector are indeed credible and true. In this regard, when such
findings have been cross-referenced for internal consistency, the conclusions and
HRD Strategy for the Tourism Sector : 31 March 2008 17
strategic options which result from them are considered as valid and relevant to
the sector.
d. It is assumed that, once developed, the strategy is not “set in stone” and is not
considered inflexible. It is assumed that there is an openness to refine and target
the strategy over time so that it can evolve into an increasingly more relevant and
precise body of interventions for enhancing HRD in the sector.
e. It is assumed that all stakeholders in the sector will align their strategic thrusts and
their development priorities and interventions with the content, focus and strategic
priorities of the NTHRDS. In this respect, there will be a high level of
cohesiveness in the sector which can create a unified momentum to reconstruct
the skills development enterprise in tourism.
• Stakeholder Participation
Stakeholder participation is critical to the success of the strategy. This participation is
critical to both the development of the strategy and its endorsement and
implementation. Unless the strategy is accepted by the tourism industry, it is unlikely
that it will achieve its intent and its targets. The representativity of key stakeholders is
therefore essential.
• Strategic Integration
The HRD strategy must promote strategic integration. In addition to the Tourism White
Paper, the Tourism Act, the BEE Charter and other key pieces of legislation, there are a
host of other strategic documents and policy instruments that are pertinent to skills
development in the sector. These are PGDPs, IDPs and a host of departmental and
sectoral strategic plans. The HRD strategy should be a unifying force which brings all
these policies within one arena of strategic consideration.
• Reliance on Best Practice
Global best practice in the field will be used as the springboard for examining strategic
options. But it is necessary to contextualize these best practices so that their relevance
and appropriateness could be determined. Best practices from countries at a similar
development level may not always be appropriate in light of other economic,
demographic, social, cultural and historical factors.
• Uniqueness in the South African Context
In relation to the point made in the foregoing sub-section, it is critical to note that the
South African context is unique. Its cultural diversity, the transformation agenda arising
from its history, the scope and breadth of rurality and poverty and its distinct and
stunning array of tourism resources are only a few of its unique characteristics. It is an
environment in which best practices could be created as we seek to address our unique
circumstances.
• Unifying Diverse Perspectives
Stakeholder views and interests differ. Many stakeholders are inclined to take
positions which will advance their own interests. The diverse perspectives and views
shared by stakeholders regarding possible strategic options must be rationalized so as
HRD Strategy for the Tourism Sector : 31 March 2008 18
to ensure that selected options and interventions could add value to the sector as a
whole. Diverse perspectives and special interests could be unified by establishing an
agenda to which all can subscribe.
• Scope of Relevant Input
The scope of input for the development of the strategy is wide in light of the diverse
array of stakeholder groups involved. But the sector is so vast, complex and diverse
that it is never certain that the reach of the project in terms of scope is adequate. The
adequacy of the scope of input will be revealed only to the extent that the strategic
options chosen have relevance to a broad audience in the sector.
• Receptivity of Overall Environment
One assumes that all stakeholders in the sector could benefit from, and will
wholeheartedly support, an HRD strategy for the sector. Hence, one expects an
environment that is receptive to the idea. But in some cases, receptivity may not be
forthcoming. In a competitive and highly prioritized environment, receptivity will
sometimes depend on what is on the table (strategic options) and the extent to which
current interests are being compromised.
• The Transformation Imperative
The transformation imperative is one of the unique aspects of the South African context.
But as will be discussed, an HRD strategy for the sector as a whole, may not
necessarily meet the needs of SMMEs, and may not, as a rule, advance transformation.
Consideration must be given to an HRD strategy which is specially directed to the
needs and requirements of transformation.
• The Unavailability of Data
In the absence of a comprehensive database on training in the sector, the quality of
data is questionable. There is no comprehensive database on the availability of training
nationally, no accurate and technically rigorous studies of skills supply and skills
demand in the sector, and no full set of competency profiles for occupations in the
sector against which the quality of programming could be judged. In this sense, it is
difficult to fully and accurately assess the skills base, the skills supply and demand
characteristics of the various sub-sectors and the status of access geographically to
high quality training.
• The Evolution of the Sector
Tourism has evolved as an enterprise that is structured and driven by the private sector
in a manner where each grouping or sub-sector has pursued objectives, individually or
through associations, that advanced its own interest. Therefore, the strength of the
sector, in most cases, lies in the capacity of private associations or bodies to pursue the
interest and enable the viability of its membership. Although the sector is government-
led and community-based, and although some policy frameworks have been created to
guide and govern the sector, the path of growth taken by the sector is essentially
determined by the owners of private enterprises in the sector. The leadership role of
government in the sector is fairly well framed in policy, but not very well executed
institutionally. As a result, streamlining and reconstituting HRD in the sector must be
pursued with the direct and concerted involvement of the private sector. While the
HRD Strategy for the Tourism Sector : 31 March 2008 19
process must be initiated and facilitated by government, its success is questionable
without the use of the private sector as the driving force. Though tourism is community
based, communities, in general, are not capacitated to be the custodians of their
tourism resources and assets.
• The Sector Skills Plan and the HRD Strategy
The content of the sector skills plan provides a rich source of input for the development
of an HRD strategy. The sector skills plan profiles and describes the sector from the
perspective of its mandate and its obligations under the SDA and the NSDS. It does
not lay out a comprehensive programme of action. The HRD strategy seeks to analyse
the sector as a whole, and, as a result, it seeks to develop an integrated programme of
action which could add value to the business priorities of the sector and contribute to
the transformational agenda of government.
• The Skills Audit Report and the HRD Strategy
The skills audit report is a clear and thorough analysis of the structure of employment in
the sector and the supply and demand for skills, and an overall description of the skills-
related and other circumstances which affect the performance of the sector. It does
not fully explore the HRD implications of its very detailed findings, and it does not
formulate its various lists of recommendations into a cohesive and integrated multi-year
strategy for sustainable and efficient human capital development. While, as a skills
audit the document is clear, detailed and thorough; as a strategy it falls short. This,
however, as clarified in its introduction, was not its intent.
• The Urgency of an HRD Strategy for the Sector
With the advent of the 2010 World Cup Soccer, with the growing emigration of
experienced tourism professionals, and with young and talented learners and graduates
opting for opportunities outside of the tourism sector, the future supply of skills for the
sector is under threat. A strategy to mediate this is a matter of extreme urgency.
HRD Strategy for the Tourism Sector : 31 March 2008 20
1.6 Key Definitions
Tourist A person who travels away from home, staying away for at least one night.
A tourist can be a domestic tourist (for example resident of Johannesburg
staying one night in Durban), a regional tourist ( a visitor from Zimbabwe
spending one or more nights in the Free State) or an overseas tourist (a
resident of Germany staying one or more nights in the North-West
Province). A tourist travels for different purposes including business,
leisure, conference and incentive.
Tourism All travel for whatever purpose, that results in one or more nights being
spent away from home
Tourism All recipients of direct spend incurred by tourists. This includes pre-trip
Industry expenditure on travel and booking, travel and enroute expenditure, and all
spending at the destination.
Tourism Three of the sub-sectors of tourism: Hospitality; Travel and Tourism; and
Sector Conservation and Tourism Guiding
HRD Human Resource Development is defined as those efforts undertaken by
organizations to ensure that employees are well prepared to undertake
their responsibilities and grow into viable careers, thereby adding value to
the productivity and service of their organizations, the motivation and
performance of their peers and the attainment of the overall vision of the
developmental state. In doing so, organizations seek to ensure that the
right people are prepared at the right place, at the right time and for the
right positions to which they can readily contribute.
Human Capital The stock of knowledge and skill, embodied in an individual as a result of
education, training, and experience, that makes them more productive.
Scarce Skills Scarce skills can arise from one or a combination of the following, grouped
as relative or absolute:
a) Relative Scarcity (suitably skilled people available but do not meet
other employment criteria):
• geographical location
• equity considerations
• replacement demand (due to lead time between demand and
training)
b) Absolute Scarcity
• a new or emerging occupation
• lack of skilled people
• replacement demand – no people enrolled or engaged in the
process of acquiring the skills that need to be replaced
Strategy Strategy is a set course of action to be taken in respect to a specific
circumstance which has been assessed. It is the manner in which
solutions to problems which exit are crafted into an integrated programme
of action.
HRD Strategy for the Tourism Sector : 31 March 2008 21
1.7 Organization of the Document
The HRD strategy is divided into 10 individual chapters, where each chapter seeks to
provide details on one critical segment of the log for presenting the strategy. The strategy
itself is presented in the eighth and ninth chapters of the document. The preceding
chapters seek to present a basic set of analytical information which leads to the strategy.
In fact, the content structure and interventions suggested in the strategy have all emerged
from assessing the HRD strategic implications of the information presented in the
preceding chapters. The respective chapters of the document are enumerated below.
The content and focus of each chapter is described briefly.
Introduction
The introductory chapter is intended as a background chapter. It presents a brief statement
of the context of HRD strategy development, and it seeks to enable a fuller understanding
of the approach taken and the perspectives and assumptions applied to the strategy
development process. This chapter is constructed and presented in a manner which seeks
to inform and empower the reader to assess the strategic choices made and more fully
understand and contextualize the information presented.
Profile of the Tourism Sector
The profile of the tourism sector seeks to sketch the overall structure, content and
circumstances of the sector. This chapter provides contextual relevance. It ensures the
question “HRD for what?” The intent of the chapter is not to provide a comprehensive
assessment of tourism in South Africa. It seeks to make six essential points as follows:
a. South Africa is part of a highly competitive tourism market globally and must be able
to compete for space and market share in the global tourism market.
b. South Africa has a set of diverse and highly competitive tourism products which
provides it with a label as a tourism market with high earning potential.
c. There has been outstanding tourism growth over the past decade or more.
d. Tourism is an essential sector in the South African economy.
e. The essential structures, features and circumstances of South African tourism have
significant implications for the structure and content of HRD.
f. Tourism growth and success in South Africa will depend on the quality and capacity
of people in the sector.
This chapter is a critical chapter in presenting the HRD strategy since it highlights the
scope, importance and urgency of the task ahead.
Reflections on HRD in the Tourism Sector
In light of the nature of the tourism sector, as discussed in the previous chapter, an attempt
is made to reflect on the role, purpose and place of HRD in the transformation of the sector.
This chapter highlights the critical questions to be answered by the strategy once it is
HRD Strategy for the Tourism Sector : 31 March 2008 22
presented. It also sets to tone and present a doorway for examining the various
components of a sound HRD infrastructure.
The Policy and Strategic Framework which Governs HRD
The policy and strategic framework which governs HRD in the sector is essentially the legal
and constitutional framework within which the sector functions, and the strategic
imperatives which define the focus of growth, development and transformation of the
sector. The point to be made here is the extreme breadth and depth of the legal and
strategic framework within which the sector operates. Any attempt to manoeuvre this
space without a set strategy is fraught with problems and destined to fail.
Human Capital Dynamics in Tourism – An Overview
The tourism sector is unique in respect to its utilization of labour. The structure of
occupations in the sector, its HRM practices (including compensation), the mobility of talent
within and across enterprises and the diverse, fragmented and unbalanced supply streams
for human resources sketches a market dynamics which affects the manner in which HRD
should be approached.
The Context of Human Resource Development in Tourism – Status, Perspectives and
Issues
HRD in tourism is examined in detail. The structure, status and issues in the sector are
presented, and the relevant strategic implications are noted. This chapter is most closely
related to the task at hand. The strategic response to this chapter, most of all, is essentially
the HRD strategy to be explained in the latter chapters.
Strategic Imperatives for HRD in the Tourism Sector
Before the strategy itself is outlined and presented, the strategic focus areas are isolated
and discussed. These strategic focus areas represent the strategic imperatives to which
we must respond. Strategic imperatives are, essentially the areas in which strategic
intervention could and will make a difference. Of all the problem areas mentioned in the
text and in the literature, these areas of focus are those which will add the highest value in
reconstructing the HRD infrastructure and thereby ensure HRD could add value to the
strategic priorities and development imperatives to which the sector’s efforts are directed.
The Conceptual Framework for Outlining the HRD Strategy in the Tourism Sector
The conceptual framework for HRD is essentially a mind map of the important elements of
the HRD strategy. It seeks to sketch a cohesive set of interventions which could be
undertaken within a set and well detailed framework of action. In this chapter the
conceptual framework is explained.
A Detailed Outline of the HRD Strategy
In this chapter a detailed outline of the strategy is presented in the form of objectives and
sub-objectives and project review sheets which summarize the key features of each of the
major objectives proposed. In essence, this chapter presents the strategy or the strategic
response to the findings of the review. This chapter is a culmination of the logical thread
which runs through the document.
HRD Strategy for the Tourism Sector : 31 March 2008 23
Structuring Implementation – Core Considerations in the Implementation Process
Implementation success is determined by the thoroughness with which implementation is
planned and the leadership and care with which it is executed. This chapter highlights
some of the core considerations for managing the process of implementation. This chapter
seeks to plot the way forward.
HRD Strategy for the Tourism Sector : 31 March 2008 24
2. PROFILE OF THE TOURISM SECTOR
2.1 Introduction and Purpose
The tourism sector is the domain of concern for which human capital must be developed,
utilized and sustained. The case has been made that human capital formation is one of
the key factors which undermine and retard growth in the sector. It is a concern that has
not been addressed since the early 1990s. Some assert that the human resource problem
in the sector will not be easily overcome because of the complexity of the sector and
because of the unique labour market dynamics within it.
The sector is indeed complex. It is made up of many vastly different sub-sectors, and it is
supported by a host of other industries and business enterprises which belong to other
economic sectors. Defining the tourism sector, therefore, is difficult. Its boundaries are
unclear, its industries and occupations wide in scope, and its services expansive. The
sector is described as “diverse and multi-layered”. Within it there are formal and informal
economies, many well established and a fast growing set of emergent business
enterprises, a host of different labour markets with inherently different characteristics and a
wide range of audiences and target markets for its services. The sector is governed by a
wide range of generally uncoordinated governmental bodies, regulated with a broad and
complex framework of laws and regulations, and is prioritized and catered for by a wide
range of generally uncoordinated strategic documents within all spheres of government.
The sector is generally described as fragmented, unarticulated, complex and diverse.
It is difficult to plan for a sector that cannot be easily described or rationalized. A human
resource development strategy for the sector must therefore take into account its reach
and its limits. Describing the profile of the sector is an attempt to highlight the reach and
limits of an HRD strategy. It is also an attempt to highlight the importance and urgency of
the task and the inherent difficulty faced in having sustained impact on the human
resource challenges faced by the sector. How is it possible to make a difference in the
sector through strategic HRD interventions? This question will only be answered if the
inherent features of the sector are understood.
The purpose of this chapter is to sketch the profile of the tourism sector in order to
highlight its implications for HRD. Such implications will be assessed both in terms of
human capital formation and in terms of the development and management of an
infrastructure for sustained skills supply in the sector. The chapter addresses the
following: tourism products; the global context; objectives to be attained; economic
structure of the sector; performance of the sector; tourism strategy; issues and trends; and
implications for HRD.
2.2 Tourism and Tourism Products?
Tourism is defined as “all travel for whatever purpose that results in one or more nights
being spent away from home” (Tourism White Paper). In this manner, the tourism industry
is broadly defined covering all economic activity associated with travel. South Africa is a
growing travel destination for business, leisure and events. The international and
domestic travelers who engage in business or leisure travel, or those who travel to
HRD Strategy for the Tourism Sector : 31 March 2008 25
participate in events, essentially constitute the tourist market. In this light, a tourist is
defined as any person who travels away from home, staying away for at least one night as
either a domestic, regional or overseas tourist, whose purpose of travel is either business,
leisure or participation in events. The wide variety of business enterprises and individuals
who serve these travelers to ensure a memorable experience beyond their expectations,
make up the tourism industry. There are many enterprises and occupations which deliver
services to make up the industry – some as direct service organizations and many that are
in support of these. The tourism industry is large and growing. The reason for its growth
is the vast and growing array of tourism products offered by South Africa as a destination,
and the wealth of indigenous assets which contribute to the country’s tourism
attractiveness. Table 2 presents an outline of some of the features which contribute to
South Africa’s tourism attractiveness. But those are complimented by hotels, restaurants
and various places of entertainment, by the people in the industry and by the attitude of
the public at large.
But the tourism assets that are available are really the raw materials of the tourism trade.
Successful tourism comes not from the assets themselves, but from the manner in which
these assets are developed and managed, and the strategic input that is made to put all
the necessary factors in place to ensure that these assets can be productive and add
value to the economy. In this regard, the key drivers of success are: marketing and
promotion; product development and innovation; ensuring competitiveness and value for
money; safety and security; and the competence, attitude and service sensitivity of the
people in tourism. In fact, all the other success factors in tourism depend on people. It is
an industry whose major assets are its people, and people are needed to sustain its
growth.
2.3 The Performance of the Sector
Historically, tourism has been an unexploited resource in South Africa; this, in light of the
phenomenal growth in tourism globally over the last 50 years. According to the WTO,
international tourist arrivals have grown from 40 million in 1950 to over 700 million in 2002.
In 2006, there were 842 million international arrivals representing a growth of 5.4% from
2005. The WTO forecasts that international arrivals will increase to 1,6 million by 2020.
South Africa, in recent time, has taken its share of benefit from this global growth. The
graph on page 28 presents the story of the evolution of international tourism in South
Africa. It has grown from less than 1 million international arrivals during the sanctions era,
to 4.8 million in 1995, and to as much as 8.4 million arrivals in 2006. The graph on page
28 shows the growth in foreign tourist arrivals in South Africa from 1990-2006. African
tourists represent 75% of total foreign tourists and constitute an important component of
South Africa’s tourism industry.
HRD Strategy for the Tourism Sector : 31 March 2008 26
Table 2: SELECTED FEATURES FO TOURISM ATTRACTIVENESS IN SOUTH AFRICA
The country’s tourism attractiveness lies in …..
1. Its diversity
2. Its accessible wildlife
3. Its varied and impressive scenery
4. Its unspoiled wilderness areas
5. Its diverse climate
6. No “jet lag” from Europe
7. A well developed infrastructure and virtually unlimited opportunities for special
interest activities (e.g. whale-watching, wild water rafting, hiking, bird-watching,
bush survival, deep-sea fishing, hunting and diving
8. Its archaeological sites and battlefields
9. The availability of excellent conference and exhibition facilities
10. A wide range of sporting facilities
11. Its good communication and medical services
12. Its internationally known attractions (i.e. Table Mountain, Cape of Good Hope,
Sun City, Kruger National Park, Garden Route, Maputaland)
13. Its unrivaled opportunities to visit other regional internationally-known
attractions (e.g. Victoria Falls and the Okavango Swamps)
14. Its competitive business
15. Its well established network of national parks and private nature reserves
16. Its global “best practice” in ecotourism
17. The successful political transformation in South Africa which has opened the
country’s tourism potential to the rest of the world and indeed to the previously
neglected groups in society
In many respects, and in spite of the challenge confronted, South Africa has performed well
in extracting value from its tourism assets. The performance of tourism is not only evident
in international tourist arrivals, but in its contribution to the economy in terms of GDP
contribution, its contribution to employment, value capture per employee and foreign
exchange earnings, among others.
HRD Strategy for the Tourism Sector : 31 March 2008 27
Graph 1: EVOLUTION OF INTERNATIONAL TOURISM TO SOUTH AFRICA
Foreign Tourist Arrivals to South Africa 1965-2006
9
8,4m arrivals in 2006
8 CAGR
1998-2001: 0.3% First Democratic
7 1998-2005: 3.7% Elections
1998-2006: 4.8%
2001-2005: 6.2%
Arrivals, Millions
6 Sanctions against South
2001-2006: 7.5%
Africa lifted
5
Nelson Mandela
4 released
3
State of Emergency
2
Sanctions Era
1
0
1965 1967 1969 1971 1973 1975 19 77 1979 1981 1983 1985 1987 1989 1 991 1993 1995 1997 1 999 2001 2003 2005
1970s and 80s – Stagnation 1990-1998 – Growth 1998 Onwards - Cyclicality
• Initial period of short-term • Global events, currency
• Stagnation drove low investment, profit-taking followed by volatility drive uncertainty and
focus on narrow white domestic period of investment growth short-term strategy by firms
market and costs and entry of foreign players • Investment rates remain weak
• Start of new focus on skills overall
and training • Skills development slow
Source: Reconstruction of graph from Tourism Growth Strategy 2008-2010
The contribution of tourism to South Africa’s GDP is approximately R120 billion, thus
outperforming all other sectors in terms of GDP contribution and job creation. Table 3
presents an analysis of the growth in the contribution of tourism to the economy and the
graph below shows the trends since 1990. The contribution to GDP grew from 4.45% in
1990 to 8.3% in 2006; and, the contribution to employment grew from 526,790 in 1990 to
947,530 in 2006. South Africa creates one job for every 12 tourist arrivals. While the world
standard according to the WTO is one job for every eight arrivals, South Africa has come a
long way in a short time.
In terms of value capture, South Africa earns US$ 7,002 per employee per year compared
to Australia’s US$ 12,232.
Graph 2: TRENDS IN CONTRIBUTION TO GDP 1990 TO 2006
TRENDS IN CONTRIBUTION TO GDP - 1990 to 2006
TRENDS IN CONTRIBUTION TO GDP - 1990 to 2006
9
9
8
8
7
7
6
% of GDP
6
% of GDP
5 INDUSTRY
5 INDUSTRY
4 ECONOMY
4 ECONOMY
3
3
2
2
1
1
0
0
0 1 2 3 4 5 6 7 8 99 00 01 02 03 04 05 06
99 99 99 99 99 99 99 99 99
10 11 12 13 14 15 16 17 18 1 9 2 0 21 22 23 24 25 26 0 0 0 0 0 0
1 99 1 99 1 99 1 99 1 99 1 99 1 99 1 99 1 99 1 99 2 00 2 00 2 00 2 00 2 00 2 00 2 00
Source: Reconstructed from WTTC information in Tourism & Sport Skills Audit
HRD Strategy for the Tourism Sector : 31 March 2008 28
Graph 3: TRENDS IN CONTRIBUTION TO EMPLOYMENT 1990 to 2006
TRENDS IN CONTRIBUTION TO EMPLOYMENT - 1990 to 2006
TRENDS IN CONTRIBUTION TO EMPLOYMENT - 1990 to 2006
1,000,000
1,000,000
900,000
900,000
800,000
800,000
700,000
700,000
600,000
000's
600,000 INDUSTRY
000's
500,000 INDUSTRY
500,000 ECONOMY
400,000 ECONOMY
400,000
300,000
300,000
200,000
200,000
100,000
100,000
0
0
19 0
19 1
19 2
19 3
19 4
1 9 95
19 6
19 7
19 8
20 9
2 0 00
20 1
2 0 02
20 3
20 4
20 5
06
9
9
9
9
9
9
9
9
9
0
0
0
0
19
19
19
19
19
19
19
19
19
19
20
20
20
20
20
20
20
90
91
92
93
94
95
96
97
98
99
00
01
02
03
04
05
06
19
Source: Reconstructed from WTTC information in Tourism & Sport Skills Audit
Graph 4: CONTRIBUTION OF TOTAL TOURISM EXPENDITURE TO TOTAL EMPLOYMENT
CONTRIBUTION OF TOTAL TOURISM EXPENDITURE TO TOTAL EMPLOYMENT
CONTRIBUTION OF TOTAL TOURISM EXPENDITURE TO TOTAL EMPLOYMENT
11.61%
10.59%
11.61%
10.59%
9.64%
12%
8.96%
9.64%
8.52%
8.23%
8.38%
8.63%
12%
8.96%
8.12%
8.52%
8.06%
8.23%
8.38%
8.63%
8.12%
8.06%
10%
7.05%
10%
6.01%
7.05%
6.01%
8%
8%
6%
6%
4%
4%
2%
2%
0%
0%
4 5 6 7 8 9 0 1 2 3 4 5
1499 1599 1699 1799 1899 1999 2000 2100 2200 2300 2400 2500
199 1 99 1 99 199 1 99 1 99 200 200 200 200 200 200
Source: Theta Sector Skills Plan 2008/09
Graph 5: ESTIMATED NUMBER OF JOBS DUE TO TOURISM EXPENDITURE
ESTIMATED NUMBER OF JOBS DUE TO TOURISM EXPENDITURE
ESTIMATED NUMBER OF JOBS DUE TO TOURISM EXPENDITURE
1,200,000
1,200,000
1,000,000
1,000,000
800,000
800,000
600,000
600,000
400,000
400,000
200,000
200,000
0
0
94
95
96
97
98
99
00
01
02
03
04
05
19
19
19
19
19
19
20
20
20
20
20
20
94
95
96
97
98
99
00
01
02
03
04
05
19
19
19
19
19
19
20
20
20
20
20
20
HRD Strategy for the Tourism Sector : 31 March 2008 29
Source: Theta Sector Skills Plan 2008/09
Table 3 ANALYSIS OF GROWTH OF TOURISM CONTRIBUTION TO THE ECONOMY
ASSESSMENT OF TOURISM GROWTH
PERIOD OF CONTRIBUTION TO GDP EMPLOYMENT
COMMENTS
ASSESSMENT INDUSTRY ECONOMY
INDUSTRY ECONOMY
% %
1990 1,83% 4,45% 251,820 526,790 -
1993 – Little change over that recorded
1992-1993 1,74% 4,61% 253,570 529,440 in 1990
2.1%
1994 5.0% 257,180 532,910 -
288,060 Compared to 1993, in 1995 14% more
2,19% 5,44% 636,680
1995-1996 (1995) direct jobs are created in the travel &
(1995) (1995) (1995)
tourism industry
1998 – The tourism sector is starting to
2,78% 7,08% 393,520 868,340 make an impact on employment with
1997-1999
(1998) (1998) (1998) (1998) 37% more direct jobs than in 1995
780,740
3.04% 7.48% 394,980
2000-2001 (2001) -
(2001) (2001) (2001)
In 2002, tourism contribution to GDP
3,5% 7.4% 395,460 843 860 and employment had increased over
(2002) (2002) (2002) (2002) that recorded in 1998. However, by
2004, the sector’s contribution to job
creation and GDP had shrunk. The
GCP report indicates that in 2002 there
2002-2004
is one tourism employee for every 12
foreign tourist arrivals. By contrast
3,2% 7,8% 365,770 797,120 Australia had 1 tourism employee for
(2004) (2004) (2004) (2004) every 8/9 foreign arrivals and Kenya has
around 1 job for 4 foreign tourists.
3,3% In 2005, tourism contribution to GDP
8.0% 393,650 864,460
(2005) and employment had increased once
(2005) (2005) (2005)
2005-2006 again, regaining the ground lost in 2004.
3.4% 8,3% 425,930 947,530 Additional gains were made in 2006.
(2006) (2006) (2006) (2006)
2.4 The Structure of Tourism in South Africa
The structure of the tourism sector is represented in its industrial or business structure, or
the structure and distribution of its enterprises; the structure of employment; the
educational level and skills profile of its employees; the geographic distribution of its
service capacity; the geographic distribution of the governmental infrastructure which
supports and contributes to its performance; and the transportation infrastructure which
makes the nation’s tourist assets accessible.
The Structure of Tourism Enterprises
The tourism sector is divided into 5 sub-sectors which represent the body of SA’s tourism
assets. The sector contains about 42,000 enterprises. Table 4 presents a breakdown of
the number of enterprises in each of the respective sub-sectors. The majority of
HRD Strategy for the Tourism Sector : 31 March 2008 30
enterprises are represented in the hospitality sub-sector with 28,000 or 67% of the total
sector. But these estimations may not be entirely correct.
Table 4: ESTIMATION OF SIZE OF SUB-SECTORS IN THE TOURISM INDUSTRY
ESTIMATION ESTIMATION OF INDUSTRY SIZE
SUB-SECTOR YEAR
SOURCE (Employers, Employees where available)
2000
Grant Thornton 35,380 employers – 477,800 employees
2005
HSRC 6,704 employers
14,828 enterprises split as follows:
• 98% small
THETA SMS 2006
Hospitality • 1.5% medium
• 0.5% large
2006
Qubelisa 9,781 organizations
Department of
2005 35,830 organizations – 477 800 employees
Labour
2007
Skills Audit 28,000 employers – 290,000 employees
2000
Grant Thornton 2,870 employers – 38,600 employees
1,800 enterprises split as follows:
• 98% small
THETA SMS 2006
• 1% medium
Travel and • 1% large
Tourism
Qubelisa 2006 3,942 organizations
Skills Audit 2007 6,200 employers – 28,000 employees
Grant Thornton 2000 900 employers – 30,300 employees
HSRC 2005 966 employers – 2,246 employees
1,579 enterprises split as follows:
• 98% small
THETA SMS 2006
• 1% medium
Conservation • 1% large
and Tourism
Guiding Qubelisa 2006 3,459 organizations
900 employers – 30,300 employees (based
Government on Grant Thornton data, contained in
2007
Gazette THETA's SSP)
3,500 employers – 30,000 permanent
Skills Audit 2007
employees
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
HRD Strategy for the Tourism Sector : 31 March 2008 31
Table 5 presents a picture of the variations in the estimations of employers and employees
in the sector
Table 5: VARIATIONS IN ESTIMATIONS OF EMPLOYERS & EMPLOYEES
SECTOR SIZE
SUB-SECTOR ESTIMATED NUMBER ESTIMATED NUMBER OF
OF EMPLOYERS % EMPLOYEES %
Hospitality 28,000 67% 290,000 77%
Travel and Tourism 6,200 15% 28,000 7%
Gaming and Lotteries 740 2% 10,000 3%
Sport, Recreation & Fitness 3,300 8% 20,000 5%
Conservation & Tourist Guiding 3,500 8% 30,000 8%
TOTAL 41,740 378,000
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
The industrial components of the sector are presented in Appendix C. While no information
is available on the number of enterprises in each component of the sector, the breadth and
diversity of the sector is clear.
One critical feature of South African tourism is its transformational component, as it seeks
to provide opportunities for wealth redistribution in the sector through facilitating the entry of
previously disadvantaged individuals into the sector. Useful data in this regard is the
percentage of black owned enterprises, the growth in GDP and employment contribution
enterprises in the sector. Most of this information is currently unavailable. But, another
component of essential data in this regard is the number of SMMEs in the sector and their
relative performance compared to SMMEs in other sectors.
Table 6 shows that SMMEs constitute over 90% of the tourism sector with the highest
percentage occurring in the Hospitality and the Travel and Tourism sub-sectors. This is an
essential and unique feature of SA’s Tourism enterprise structure. The preponderance of
small employers has implications for economic performance and for the manner in which
human capital is developed and utilized.
Table 6: SMME
SMMEs
SUB-SECTOR PERCENTAGE SMMEs IN SUB-SECTOR
Hospitality 97%
Travel and Tourism 97%
Gaming and Lotteries 89%
Sport, Recreation & Fitness 98%
Conservation and Tourist Guiding 89%
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
HRD Strategy for the Tourism Sector : 31 March 2008 32
The Structure of Employment
Tables 4 and 6 also present estimates of employees in the tourism sector. It is established
that there are 378,000 employees in the sector. But this figure could be as high as 600,000
if the varying estimates in Table 4 are taken into account. Both these tables present
employee estimates by the respective sub-sectors. Again, the hospitality sector accounts
for the highest number of employees. Again, there is no data on the geographic dispersion
of employment by the respective sectors, but some data is available to illustrate the
transformational impact of employment. Table 7 shows the gender and race profile of
employees
.
Table 7: GENDER AND RACE PROFILE OF EMPLOYEES
EMPLOYEE GENDER AND RACE PROFILE
SUB-SECTOR % BLACK EMPLOYEES % FEMALE EMPLOYEES
Hospitality 72% 52%
Travel and Tourism 58% 48%
Gaming and Lotteries 68% 51%
Sport, Recreation & Fitness 53% 46%
Conservation and Tourist Guiding 74% 42%
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
The percentages of black and female employees are quite high with 72% of the employees
in the Hospitality sector categorized as black, and 52% female. The data, however, does
not tell the whole story. When the data is broken down further, it shows that a large
percentage of the black employees in the sector are employed in low entry level jobs, many
of which are casual employment without prospects for promotion and career growth. Table
8 for instance, shows the number and percentage of employees by occupational level and
race. The same trend is evident. Non-white employees are generally grouped at the lower
levels of the occupational ladder. Table 9 shows trends in the breakdown of the THETA
workforce by equity status. The data shows a growth in the number of Africans employed
and a growth in the number of female workers. It shows over the period a decline in the
number of white employees in the workforce.
Table 8: EMPLOYEES BY OCCUPATIONAL LEVEL & RACE
OCCUPATION NUMBER AND % OF EMPLOYEES BY RACE TOTAL
BLACK COLOURED INDIAN WHITE
# % # % # % # % # %
Senior 2 914 2.1 1 071 0.8 642 0.5 6,405 4.7 11,032 8.0
Professional
Professional 997 0.7 350 0.3 218 0.2 1906 1.4 3,471 2.5
Technicians 3 318 2.4 1,087 0.8 778 0.6 4211 3.1 9,394 6.9
Clerical 7 949 5.8 2,389 1.7 1,146 0.8 3919 2.9 15,403 11.2
Service 46 764 34.1 7,861 5.7 1,862 1.4 6115 4.5 62,602 45.7
Skilled 3 636 2.6 507 0.4 92 0.1 464 0.3 4,699 3.4
Plant and 1 809 1.3 216 0.2 19 0.0 45 0.0 2,089 1.5
Machinery
Labourers 23 421 17.1 4,191 3.1 257 0.2 519 0.4 23,388 20.7
TOTAL 90,800 66.1 17,672 12.9 5,014 3.7 23,584 17.2 137,078 100
Source: Reconstructed from Sector Skills Plan 2008/09
HRD Strategy for the Tourism Sector : 31 March 2008 33
Table 9: SUMMARY OF DEMOGRAPHIC BREAKDOWN OF THETA WORKFORCE
EQUITY SHARES 2003-2004(%) 2004-2005(%) 2005-2006(%) 2006-2007(%)
African 61.1 60.3 62.1 66.3
White 21.8 22.3 20.9 17.2
Coloured 13.1 12.9 12.6 12.9
Indian 4.4 4.3 4.4 3.7
Female 53.5 53.6 54.1 55.1
Source: Reconstructed from Sector Skills Plan 2008/09
Table 10 shows the percentage of black senior managers/officials in the sector. The
percentage is averaged at 40%-50%, but relatively high in terms of historical trends and
employment practices in the sector.
At 20%, the area of Conservation and Tourism Guiding has the lowest percentage of black
Senior Managers/Officials
Table 10: SENIOR MANAGER/OFFICIAL PROFILE
SENIOR MANAGER/OFFICIAL PROFILE
% EMPLOYEES IN SENIOR % BLACK SENIOR
SUB-SECTOR MANAGER/OFFICIAL MANAGERS/OFFICIALS
CATEGORY
Hospitality 21% 40%
Travel and Tourism 40% 45%
Gaming and Lotteries 29% 56%
Sport, Recreation & Fitness 23% 40%
Conservation and Tourist Guiding 16% 20%
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
2.5 The Educational and Skills Profile of Employees in the Sector
The educational levels and skills profile of the sector is an indication of the sector’s
potential to respond to the sector’s accelerating growth, development and expansion. The
levels of education in the sector are critical in a market that has become more competitive,
more technically sophisticated and more challenged with the growing expectations of
clients for the quality of service rendered. In respect to educational levels and the
adequacy of the profile of skills among employees, South African tourism is challenged.
Table 11 presents data on the educational level of employees in the sector. The picture
raises concern. The majority of employees in the sector are qualified below the level of
NQF4, and a large percentage is below NQF level 1. In the sub-sectors, Travel and
Tourism and Gaming and Lotteries, the educational levels are relatively high. In the other
sectors, educational levels are average to low. The Hospitality industry, with the highest
HRD Strategy for the Tourism Sector : 31 March 2008 34
number of enterprises and the most employees, has the highest number of under-qualified
employees.
Table 11: EMPLOYEE QUALIFICATION LEVEL
EMPLOYEE QUALIFICATION LEVEL
SUB-SECTOR % NQF 5-8 %NQF 2-4 %< NQF 1
Hospitality 18% 28% 54%
Travel and Tourism 74% 18% 7%
Gaming and Lotteries 55% 40% 5%
Sport, Recreation & Fitness 19% 37% 44%
Conservation and Tourist Guiding 22% 50% 28%
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
Table 12 shows the same data, but presents the numbers of employees in each sub-sector
by educational levels. The same trend is evident.
In summary, the following should be noted regarding the educational levels of employees in
the sector.
• 34% of employees have Grade 12
• About 27.5% have less than Grade 12
• About 78% of employees in Hospitality have Grade 12 and below 42% has less
than Grade 11
• The Gaming and Lotteries sub-sector has the second highest percentage (67%)
of employees with Grade 12 and therefore a greater demand will be on level 5
and higher qualifications
• Travel and Tourism has the highest percentage of employees (46%) with post
Grade 12 qualifications and lowest percent (9%) of Grade 11 and below.
Table 12: EDUCATIONAL LEVEL ACROSS SUB-SECTORS
CONSERVATION SPORT,
EDUCATION GAMBLING & TOURISM & GRAND
& TOURISM HOSPITALITY RECREATION &
DESCRIPTION LOTTERIES TRAVEL TOTAL
GUIDING FITNESS
Grade 12
1,055 9,291 18,364 2,610 2,974 32,294
Cert/ Diploma/
NTC 5-6
533 2,170 9,203 2,940 3,801 18,647
Undefined
151 3,074 11,393 292 1,356 16,266
Below Grade 9 /
Std 7 / ABET 4
1,983 294 5,861 525 126 8,789
Grade 10 / Std 8 /
NTC1
500 825 6,496 319 261 8,401
Grade 11 / Std 9 /
NTC1
185 561 4,137 326 337 5,546
Grade 9 / Std 7 /
ABET 4
639 120 3,936 251 80 5,026
Degree/ Higher
Diploma
329 4128 1,321 249 611 2,928
HRD Strategy for the Tourism Sector : 31 March 2008 35
Honours / Masters
Degree
118 138 339 104 97 796
Doctoral
15 1 3 9 3 31
TOTAL 5,508 16,892 61,053 7,625 9,646 100,724
Source: Table reconstructed from Sector Skills Plan 2008/09
2.6 The Geographic Distribution of Service Capacity
The geographic spread and capacity of the tourism enterprise is a critical factor in planning
tourism growth and development. South Africa’s tourism assets are distributed throughout
the geography of the state with many located in rural communities. Each area targeted for
development should asses its own capacity to deliver services. Each of the GCP areas,
for instance, should base its planning on a detailed analysis of its capacity for delivery.
While no comprehensive data is currently available in this regard, there are trends which
show that rural areas are lagging behind in capacity. Their markets for labour are more
restricted because of the emigration of talent to the urban centres; the scope of tourist
facilities are restricted because of challenges related to lack of investment capital; the
qualify of services rendered is sometimes lower because of the absence of training
facilities. In many cases development initiatives in the sector are unable to reach many
communities.
2.7 The Geographic Distribution of Government Infrastructure
Tourism is government-led and private sector-driven. This leadership must be exercised
from the national level, and articulated across all spheres of government including
communities. There are many governmental regulations and initiatives which impact on
the sector. Accessibility to these services must be across the geography of the state.
Here again, no comprehensive analysis has been done. The available data, however,
seems to indicate that rural communities are disadvantaged in this regard. For many of
them, government initiatives do not reach their jurisdiction and accessibility to services and
information remains restricted.
2.8 The Transportation Infrastructure to Promote Accessibility
While the overall transportation infrastructure of South Africa is excellent, again, some
rural communities are disadvantaged as they are without the necessary transportation
infrastructure to adequately market and benefit from the tourism assets in their area.
While tourism plans and strategies may be adequate, little can be accomplished in terms
of overall growth and development if the necessary infrastructure is not in place.
2.9 Vision and Strategy in Tourism
One of the critical questions to be answered is whether the vision and objectives for
tourism could be supported by the current structure and capacity of the sector. The vision
for tourism sets the stage for the path to be taken in growth and development, while the
strategic business priorities for the sector define the areas for investment, strategic focus
and increased productivity. These, however, must be considered in light of the foregoing
HRD Strategy for the Tourism Sector : 31 March 2008 36
information on capacity. It is clear, however, that capacity building is needed at all levels
before development initiatives can pay off in terms of the growth and development of the
sector.
The early vision for tourism as expressed in the 1996 White Paper on Tourism, is “… to
develop the tourism sector as a national priority in a sustainable and acceptable manner,
so that it will contribute significantly to the improvement of the quality of life of every South
African”. Here, tourism was seen as a major force in reconstruction and development.
While the earlier vision focused on the redistribution and transformation agenda in the
tourism sector, the more recent vision expressed by DEAT stresses a customer service
orientation in tourism. Both are critical. The Tourism Act mandate for the sector is
sustainable GDP growth, sustainable job creation and redistribution and transformation.
In order to meet this vision South African tourism in its strategy has established 11 areas
of focus as the pillars of development in tourism. These are itemized below.
a. Targeted marketing strategies as a means of focusing on markets which can add
the most value to tourism growth. Here, the core markets are the domestic market,
Kenya, Nigeria, Botswana; the USA and the UK; Australia and India; and France,
Germany and the Netherlands. In addition, there will be a focus on business
tourism where there is significant room for growth. The focus here will be on
meetings (see Table 13).
b. Promoting and enhancing skills development in support of the tourism sector.
c. Promoting product and business development in order to build a sound tourism
infrastructure for service delivery.
d. Capacitating local government to manage and sustain tourism resources in their
local jurisdiction.
e. Placing a strategic focus on the 9 GCP areas as follows:
• Greater Durban and Pietermaritzburg
• Drakensberg
• East London and Wild Coast
• Panorama Route
• Central Limpopo
• Pilansberg / Madikwe
• Port Elizabeth and Environment
• Dolphin Coast
• Elephant Coast
f. Promoting and ensuring quality service and standards through strategic
interventions to improve the grading system; to promote the tourism trade and
travelers charter and the tourism ombudsman; legislation of tourism business; and
review of tourist guide legislation.
HRD Strategy for the Tourism Sector : 31 March 2008 37
g. Improvement in the quality of information, intelligence and research.
h. Implementation of the tourism safety and awareness plan.
i. Promoting transformation in tourism.
j. Improving access to transportation.
k. Implementation of the 2010 Tourism Plan.
Table 13: BUSINESS TOURISM
BUSINESS TOURISM
PERFORMANCE STATISTICS
CATEGORIES OF 2002 2005
BUSINESS
TOURISM COMMENTS
TRAVELLERS
TRAVELLERS
RANDS (BN)
RANDS (BN)
US$(BN)
US$(BN)
(MN)
(MN)
• A large market with over 70
Exhibitions exhibitions in South Africa
No data every year and over 1.5
Global
Strategy: million attendees
Do not appear • However, they tend to be
attractive at present mostly for a domestic
– need more audience
information from • Moreover, there is a limited
industry before they impact on many of SAT’s
become a focus for goals
SAT • Better data on foreign visitors
SA No data to exhibitions is needed
before SAT should invest in
this market
• High spend per trip
Incentives • Contributes to SAT’s goals
Global 3 86 8.3 4 59 9.8 • However, strong overlap with
Strategy: leisure tourism and with
Not a priority on their meetings
own – form part of • Better data on visitor numbers
the corporate SA 0.04 n/a n/a 0.04 0.03 0.05 is needed before SAT should
meetings strategy invest heavily in this market
• Large market
Meetings • Contributes to SAT’s goals,
particularly improving
Strategy: Global 12 297 28.6 20 317 53
seasonality
Meet SAT’s goals, • South Africa is well positioned
large and attractive to serve this market with world
market class facilities
• Although recent slipping down
ICCA rankings, South Africa
SA
n/a n/a n/a 0.24 1.7 0.3 has a strong competitive
position, and on a number of
delegates hosted basis, its
ranking is actually improving
Source: Tourism Growth Strategy 2008-2010
HRD Strategy for the Tourism Sector : 31 March 2008 38
2.10 Issues and Trends in the Sector
The strategic focus areas are in direct response to the issues confronting the tourism
sector. These are itemized below.
• Lack of targeted marketing strategies
• Uncoordinated approach to branding
• Limited transformation
• Inappropriate transport capacity and services
• Unfocussed and uncoordinated product and business development and investment
approach
• Skills gaps not understood
• Quality assurance interventions not yielding results
• Perception of South Africa as an unsafe destination
• Local government not capacitated to deliver on tourism
HRD Strategy for the Tourism Sector : 31 March 2008 39
3. REFLECTION ON HRD FOR THE TOURISM SECTOR
3.1 Introduction and Purpose
The growth potential of the sector is enormous and the strategic priorities for the sector are
complex and demanding. But success and competitiveness in the sector cannot result
without people. The sector must have the stock and flow of the appropriate skills that will
keep it at a global level of service excellence. In spite of the national tourism resources
possessed by South Africa as a country, and in spite of the many tourism products which
could be tendered competitively in the global market, it is the talent in our people that will
make the difference. Human resource development is therefore the lynchpin of tourism
success. But HRD for such a complex, diverse and growing sector is not merely a matter
of training in areas of scarce and critical skills. It must be a comprehensive and efficient
structure for building, maintaining and properly utilizing human capital for the performance
of the sector. It will be worthwhile to explore and reflect in this chapter on the nature and
meaning of HRD for the tourism sector.
3.2 Human Capital and Tourism
As a primary asset for tourism success, the human factor is its most valuable capital asset.
Building human capital for the sector is therefore a concern which must permeate all of the
sector’s activities. But building human capital is a long term process. Human capital
formation for the sector begins with the early social and educational foundation provided in
the schools, homes and communities of the country. It begins, not only with the right
educational exposure at an early age with investments in literacy and numeracy, but with
the rich attitude, cultural pride and social disposition upon which good traditions of service
excellence are made. Human capital formation for the sector must be founded upon a rich
and wide base of talented potential which comes from the diverse and scattered
communities of the state. It is from this pool of talent that our stream of supply eventually
emerges. The structure for human capital formation in the sector must therefore begin at
the source where fundamentals are taught. The manner in which this talent is groomed
and shaped through our various institutions, organizational structures and workplaces
must be properly managed. Human capital formation for the sector is the structure and
process through which such talent is groomed and made available to employers in the
sector. But this structure has evolved into a complex, multi-faceted, uncoordinated and
inefficient super structure for skills generation where the production of skilled labour
cannot be tracked or managed to promote the interest of the industry as a whole.
3.3 The Concept of HRD for the Tourism Sector
The concept of HRD for tourism refers not only to the skills to be developed in people who
deliver services in the sector but to the effective development of all the human capacity
required to manage the structures, operations and processes for human capital formation
and utilization. Here, we do not refer to the employees in establishments and enterprises
only; we refer to all individuals who are involved in ensuring the effective performance of
the sector. This includes policy makers, training providers, relevant officials in local
government and among others, members of the respective communities whose
HRD Strategy for the Tourism Sector : 31 March 2008 40
knowledgeable attitude and behaviour will affect the success of tourism locally. One
aspect of tourism planning is the means through which an environment is made “tourist
ready”; and, one component of this, is the readiness of community members to serve and
cater to visitors. Even here, in fact, HRD should play an important role, perhaps through
ABET.
Beyond this broad scope of human capital development there are other critical aspects of
a national HRD strategy for tourism. HRD must be delivered within a well defined policy
framework; it must run in a context where organizational structures for education and
training delivery are cohesive and properly integrated, and where there are systems and
processes in place to ensure that human capital development is responsive to the
demands of the sector.
In effect, strategic HRD is about the content of education and training as well as structures
and systems that are in place to ensure that education and training adds value and
enhances performance. A strategic approach to HRD will therefore take cognizance of the
entire education and training infrastructure which ensures that, in the end, that the people
who are produced by our system are able to render the best in service to our clients and
accord them with due hospitality and satisfaction.
3.4 Fundamental Requirements for the Pursuit of an HRD Strategy
There are 4 fundamental requirements upon which the HRD strategy must be framed: the
availability of focused business plans; the availability of avenues through which all sub-
structures in the sector could be readied; the availability of policy frameworks within which
a strategy for the sector could be constituted; the availability of people from which a pool of
talent can be built. Each will be discussed separately below.
i. Business Planning
The value of HRD is in its impact on the attainment of business priorities. People
are developed so that the strategic targets and priorities of the sector can be
attained. A thorough business plan therefore precedes the development and
viability of an HRD strategy. Business plans are in place for the tourism sector as a
whole and for its respective sub-sectors, which then provides a sound basis for
HRD strategy development for the sector. However, business plans may not be in
place for many local jurisdictions and for many governmental and non-governmental
entities in the sector.
ii. Extended Reach
The HRD strategy is for the sector as a whole. Its provisions must be applicable to
all segments of the sector, and all parties must be able to fully respond to and abide
by its strategic provisions. This will require organizational structures and processes
which extend the reach of the strategy into all structures and communities where its
provisions are applicable. It is these same structures which must work together for
the strategy to be successfully implemented. There are gaps in some of these
essential structures.
HRD Strategy for the Tourism Sector : 31 March 2008 41
iii. Policy Frameworks
Policy frameworks refer to the overall strategic provisions for HRD in the country
within which the HRD strategy for the sector must fit. These include the National
HRD Strategy, the National HRD Strategy for the Public Service, and the National
Skills Development Strategy, among others.
iv. People
People to be developed to drive the sector, is one of the key components of the
HRD strategy. But the availability of people to be developed may be deceptive.
While there are many who are willing to be trained for the sector, in general, there
are pockets – either geographically or occupationally – where suitably qualified
people are not available for training. In addition, there are gaps in the
organizational structure and staffing of government where no personnel are
allocated to undertake critical responsibilities in managing the performance of the
sector. There must therefore be a comprehensive review of the availability of
people to be developed for undertaking responsibilities in the sector.
3.5 Critical Questions to be Answered in Crafting and HRD Strategy for the
Sector
The HRD strategy must answer six critical questions as follows:
a. What is our vision for HRD?
b. How will we configure institutional structures for effective delivery?
c. What governance mechanisms will ensure that HRD adds value?
d. What are the strategic levers for improving effectiveness and efficiency in HRD in
the sector?
e. What delivery instruments will ensure and sharpen the link between skills
development, economic performance and competitiveness in the global tourism
environment?
f. What capacity is needed to reconfigure and sustain a viable HRD enterprise in the
sector?
HRD Strategy for the Tourism Sector : 31 March 2008 42
4. THE POLICY AND STRATEGIC FRAMEWORK FOR HRD
4.1 Introduction and Purpose
Human resource development in the tourism sector must be designed and managed in a
manner that supports the success of tourism in the economy. HRD, in this respect, must
serve the business priorities, development expectations and legal obligations to which
activities in the sector are directed. It is only through its people that the sector will address
its legal obligations and business priorities. HRD must therefore be considered within the
policy and strategic framework which sets out and defines the obligations and focus of the
sector’s activities. The purpose of this chapter is to map the legal and strategic framework
which defines the scope and boundaries of HRD in tourism. In the end the chapter
highlights the implications of this framework for strategic priorities in HRD.
4.2 Conceptualizing the Framework
The legal framework for HRD in tourism, like the legal framework for all government policy,
is founded upon our institutional norms and principles and affected and shaped by the
development issues which affect social welfare and which influence economic growth and
development. In seeking to respond to the welfare of all citizens, a strategic and
regulatory framework has been created to guide and govern the efforts of government in
impacting and resolving the social and economic challenges of our time. Tourism, as a
major and targeted sector of the economy, is intricately woven into government’s response
to the fundamental development imperatives which affect the welfare of the nation. In
representing the legal and strategic framework for HRD, therefore, it is necessary to
examine 4 separate areas of emphasis in policy governance for the sector.
i. The development imperatives which influence the structure and content of policy
ii. The fundamental economic and social policy frameworks
iii. The overall public regulatory environment impacting on tourism and HRD in tourism
iv. The regulatory environment governing tourism and tourism plans and strategies
Each of these areas will be discussed separately, and the strategic implications will be
assessed in the final section of the chapter.
4.2.1 Development Imperatives
Public policy and strategic initiatives in the tourism sector cannot ignore the
development imperatives which define and influence all the policy efforts of
government. While economic viability, political stability and social welfare remain
central to government’s policy, the core issues which are fundamental to people’s
livelihoods and welfare permeate the policy agenda, and continue to affect all
aspects of public policy intervention. Among these issues are poverty;
unemployment; public insecurity through crime and violence; the persistence of
social and economic inequities; and issues of future health particularly in reference
to HIV and AIDS. These are matters of ongoing concern and cannot be extracted
from the tourism agenda. For this reason, tourism has been selected as one of the
priority economic sectors of JIPSA. As a growing sector, it has an inherent potential
HRD Strategy for the Tourism Sector : 31 March 2008 43
to make a difference in the lives of people. In addition to its contribution to the
economy, in light of its geographic scope and occupational structure, the sector also
has much potential for creating employment among youth, for creating business
opportunities for many and for changing the landscape of economic employment
and social inequities. Tourism touches every community, and has the greatest
reach in terms of creating opportunities “on the ground”. In this respect, its potential
for making a difference in the lives of people may be its greatest asset.
4.2.2 Economic and Social Policy Frameworks
The architecture of development is reflected in the basic plans, policies and
strategic frameworks which inform the activities of all government. Fundamental
among these documents are the National Spatial Development Strategy, the MTEF
and the IDPs and LED Strategies of local government. These, together, craft the
path of development for South Africa, and they set the basic priorities in place for
growth in various jurisdictions. Tourism growth and development is a common
feature in all these documents as tourism is commonly advanced as an area of
priority in policy pronouncements, and is usually seen as the bedrock of economic
opportunity in most areas. But in order to accommodate the growth and
development of tourism, these strategic documents must also address the wider
development issues which affect the growth and performance of the tourism
industry. Among these are: environmental issues such as soil erosion,
deforestation, water shortages and water and air pollution and waste management;
infrastructure issues such as lack of roads and electricity in rural areas; issues such
as tourism security as evidenced in the wide perception of violence and crime in
communities; and social issues such as poverty, unemployment and the growing
prevalence of health risks in communities.
The tourism industry cannot be isolated from these concerns since tourism must be
built on sound physical and social infrastructure where the overall environment is
responsive and where the people and their cultures can add value to the robustness
of the industry. Tourism growth and development is therefore a multi-level, multi-
faceted and inter-disciplinary endeavour where inter-sectoral approaches are
fundamental to success. The core social and economic policy frameworks therefore
constitute the base upon which strategy for the sector is constructed.
4.2.3 The Public Regulatory Framework
For HRD in tourism, the public regulatory framework is constituted of: the policy
provisions for public sector transformation and for managing the public service as a
whole; the body of public policies related to education and training and to HRD in
the public service and beyond, and the regulatory frameworks which govern the
activities of other sectors and government departments that influence and affect the
management and performance of the tourism industry in general. This regulatory
framework is extensive, complex and dynamic. As the policy environment is better
understood and as more issues are confronted and resolved, policy prescriptions
change over time and they become more thorough and sometimes more demanding
and cumbersome. In this light, policy coherence in tourism and in HRD in tourism is
critical to the industry. Policies, which are meant to strengthen the sector, cannot, in
the end, serve to stifle the sector’s progress.
HRD Strategy for the Tourism Sector : 31 March 2008 44
Figure 2: THE LEGAL AND POLICY FRAMEWORK AFFECTING HRD IN THE TOURISM SECTOR
SOUTH AFRICAN CONSTITUTIONAL PRINCIPLES AND GUIDELINES FOR THE PUBLIC SERVICE
GOVERNANCE STRUCTURES
Government Departments Coordinating Structures Industry Bodies
• DEAT • National Tourism Skills Development TBSCA, FEDHASA, SAAHS, HILG, TESA,
• THETA Forum SAACI, NTTPF, STASA, SACCAWU,
• DTI • MINMEC and MIPTEC HIAWU
PUBLIC SERVICE POLICY, STRATEGY AND REGULATORY FRAMEWORK
GOVERNING TOURISM AND TOURISM PLANS AND STRATEGIES
Legal Framework Strategic Framework Transformation Initiatives Special Programmes and
• White Paper on the • Tourism Growth Strategy • Integrated Tourism Enterprise Projects
Development and Promotion 2008-2010 Support Programme (TEP) • ASGISA
of Tourism in South Africa • Global Competitiveness • Transformation Strategy for • JIPSA
(1996) Report (GCP) SA Tourism • EPWP
• Tourism Act and Associated • Tourism Second Economic • BBBEE Strategy • CDW
Amendments Strategy • Tourism Infrastructure
• Tourism Airlift Strategy Investment Framework
• Tourism Land Transport • Integration of Tourism with
Strategy Spatial Development
• Tourism Trade and Travellers Initiatives
Charter • Leadership of Tourism
Enterprises with SMEDP
PUBLIC REGULATORY FRAMEWORK
IMPACTING ON TOURISM AND HRD IN TOURISM
Public Service Transformation & Education HRD and Skills Development Regulatory Frameworks and Strategies
Regulatory Frameworks • HRD Strategy for South Africa in Sectors which affect Tourism
• Batho Pele White Paper • HRD Strategy for the Public Service • Department of Labour Policies on Wage
• White Paper on Transforming the Public • National Skills Development Strategy 2 Determination
Service • White Paper on Human Resource • Department of Home Affairs and Policies
• White Paper on the New Employment Management in the Public Service related to Visas
Policy for the Public Service • White Paper on Public Service Education • Department of Transport and Policies
• Public Service Act and Regulations and Training related to aviation, taxi and tour
• Employment Equity Act • SAQA Act operators, transport for tourism, condition
• Labour Relations Act • Higher Education Act of roads and infrastructure
• Skills Development Act • Department of Arts, Culture and Sports
• Skills Development Levies Act and regulations related to sports and
heritage issues
• Department of Health – standards for
handling foodstuffs
• DPLG Leadership and Management
policy
• DTI’s role in stimulating business growth
and competitiveness
ECONOMIC AND SOCIAL POLICY FRAMEWORKS WHICH AFFECT TOURISM PLANS AND STRATEGIES
Policy positions taken Integrated Development Plans
politically: (IDPs)
• Budget speeches Medium Term Expenditure National Spatial Development
• State of the Nation Address Local Economic Development Framework (MTEF) Strategies
Strategies
DEVELOPMENT IMPERATIVES AFFECTING SOCIAL WELFARE AND ECONOMIC GROWTH AND DEVELOPMENT
• Poverty Alleviation
• Unemployment
• Backlogs in service delivery – housing, water, schools, electricity
• Reduction of crime and violence and promotion of safety and security
• Health and welfare of citizens – HIV and Aids
• Transformation
HRD Strategy for the Tourism Sector : 31 March 2008 45
4.2.4 The Public Policy and Regulatory Framework Governing Tourism
The tourism sector is governed by the Tourism Act and its amendments, by the
early provisions and vision of the White Paper on the Development and Promotion
of Tourism, and by a variety of plans and strategies which relate to the activities of
the various sub-sectors of the industry. Of particular note among these strategic
documents are the Tourism Growth Strategy 2008-2010 and the wide variety of
transformation initiatives that are being undertaken in the sector. The key
documents are itemized in Figure 2.
HRD Strategy for the Tourism Sector : 31 March 2008 46
Table 14: STRATEGIC IMPLICATIONS FOR HRD EMERGING FROM THE POLICY AND STRATEGIC
FRAMEWORK FOR THE SECTOR
KEY ASPECTS OF THE POLICY EVIDENCE IMPLICATIONS
AND STRATEGIC FRAMEWORK
1. • There is a “social responsibility”
The development imperatives to Pervasive social issues and dimension of tourism where tourism
which tourism as a sector must government programmes which seek plans interact with development
respond to address them imperatives
• Need for targeting tourism
programmes to areas where there
could be high impact in the short
term
2. • The need for capacity to manage
The pervasiveness of tourism- Incidence of tourism-related content in tourism at all levels
related plans and initiatives on the IDPs, LED strategies, provincial
development plans and strategies growth and development strategies, • The need for plan and strategy
of many communities etc. integration
• The need for structures which
streamline strategy and policy
intervention down to communities
3. White Papers and public policies • Transformation is a critical
The public policy agenda for which seek to maximize opportunities component of strategy and policy in
transformation for the poor and previously the tourism sector
disadvantaged, change the manner in
which the public welfare is governed, • Sector is difficult to transform, but
change the structure of the economy has the greatest potential for
to expend opportunities for wealth meeting a broad based
creation, etc. transformation agenda
4. • The need for inter-governmental
The expansive and complex Many government departments, coordination
regulatory environment which national, provincial and local, are
governs tourism involved in managing aspects of • Need for capacity to effectively
public regulation which affects tourism manage complex policy
environments
5. • HRD in the tourism sector must be
A sound and well-specified Many laws, plans and strategies exist aligned with HRD for the public
framework exists in public policy on HRD and skills development in service, with the NSDS II and with
for managing HRD generally and in general overall provisions for human
the public sector development in South Africa
6. • The HRD strategy must be targeted
The legal and strategic framework The Tourism Act, its amendments and to critical priorities for growth and
for tourism in South Africa various strategies pertaining to the development in tourism, and it must
specifies a wide variety of priorities sector provide a framework of address the issues in the field
for tourism growth and operation in priorities and guidelines for action. which can be resolved with an
South Africa. education and training response
HRD Strategy for the Tourism Sector : 31 March 2008 47
5. AN OVERVIEW OF HUMAN CAPITAL DYNAMICS IN THE
TOURISM SECTOR
5.1 Introduction and Purpose
Human capital in tourism refers to the stock and flow of skills that are available to
employers in the sector. In this respect, there is a general sense that in spite of the rich
potential for tourism growth and development, South Africa does not have the level and
quality of human capital to become truly competitive internationally. All the available
evidence in this regard seems to substantiate this claim. The claim, however, raises a
variety of concerns. The first concern is the extent to which the lack of skills restrains the
sector’s growth. A more important concern, however, is that perceptions of skills shortage
in the sector seems to be determined only through a variety of analyses of existing
shortfalls in the interface between the production of skilled people and the availability of the
right mix of skills in the sector. This view, essentially, is from the side of employers who
perceive that their success is limited by the lack of skills. The appropriate solution
therefore, is to train more people in the areas where there is a demand for skills. The result
is the detailed documentation of areas in which training is needed, and a concomitant
response by education and training institutions to provide training which will fill the skills
gap. But, in spite of the training delivered over the years, the skills gap remains. Perhaps
the skills shortage issue in the sector is much more complex. Training more people will not
necessarily result in the utilization of this base of talent by employers, and, as a
consequence mass training interventions may not lead to the enhanced performance of the
sector.
The issue is not only human capital formation in the sector, but the efficacy of human
capital management. In this respect, inconsistencies in the sector abound. There is
simultaneously skills surpluses and skills shortages in the sector; while in selected
occupational areas a surplus of skills may exist, there are still some geographic areas
which may experience shortages; in some cases the education and training output for the
sector may end up in other sectors because of a variety of inadequacies in the labour
market for tourism; the availability of skills in the economy does not necessarily result in the
sustained availability of skills in the sector; even when skills exist in the sector these skilled
individuals are sometimes misallocated and placed in positions outside their areas of
training.
There are other examples of inconsistencies. In the sector, there is a wide base of skills
and a large proportion of individuals in lower segments of the occupational ladder, but,
because of the labour dynamics in specific occupations and the HRM practices of many
employers, people who begin in the lower level occupations do not generally flow in mid
management and management positions.
The issue here is the gap between human capital formation and human capital utilization. It
is necessary to determine the factors which affect the sustained availability of human
capital, and, on that basis, create protocols for human capital management in the sector.
HRD Strategy for the Tourism Sector : 31 March 2008 48
The purpose of this chapter, therefore, is to briefly explore some of the factors which typify
the inconsistency, contradictions and market dynamics of human capital management in
the sector. The purpose here is to establish a base for identifying possible responses to
the circumstances which now exist and then craft these responses into strategic
interventions. In essence, human capital will not be effectively managed in a manner that
benefits the sector, unless and until consideration is given to those factors which affect the
flow and utilization of skilled people. Several factors will be discussed. These factors will
be grouped into separate categories as follows: demographics, educational, economic,
employee wellness management, emigration, planning and management, traditional social
factors, industry practice, policy leadership and governance, availability of infrastructure,
history and tradition, and a body of legal factors. Each of these sections will be discussed
below.
5.1.1 Demographics
The human capital in the sector is fundamentally affected by demography. The labour
force is constituted of all individuals 19 years of age and over. With 45% of the population
under the age of 19, there is about 55% of the population or 22 million people who
represent, in sum, the available skills potential to serve the economy. But this is deceiving
in many ways since all 22 million may not be available. Among the factors which limit the
productive potential of the labour force are: about 5% of the population over 19 years are
beyond working age; the educational level of the population in general; internal migration;
geographic dispersion and population density; the age structure of the population; the
health status of people of working age; declining birth rates as families become more
affluent; the limited range in the base of skills available in the population; labour mobility;
and among others, the rising death rates and voluntary separations among economically
active people. This, in fact, paints a picture of the circumstances which contain the base of
skills available to the economy. With the growth of the economy and the expansion of our
industrial and commercial capacity, a growing number of employers have to compete in an
increasingly restrictive pool of talent. As will be discussed later, educational factors can
mediate the productivity of the labour force; but even here, issues arise.
In respect to the list of demographic factors above, a few comments will be made in order
to more accurately highlight the circumstances. About 71% of the population has less than
a matric certificate; about 21% of the population possesses a matric certificate only; and
only 8% of the population possesses higher education. The majority of South Africa’s
population has less than a matric certificate. In fact, overall, 18% of the population has no
schooling, with 22% of the population in the Eastern Cape, 33% in Limpopo and 28% in
Mpumalanga. The situation is even worse in some rural communities and in some
townships and informal settlements in all the larger cities. Participation rates in education
are relatively low. Among the ages 5-24, representing 19 million individuals, about 30% or
5.5 million of them are not in school, and only 1.6% or 316,000 are enrolled in some form of
higher education. The first issue here is the inadequacy of the educational base for skills
development. But other issues arise: the extent to which lack of education among many
restricts the pool of labour; the great divide in the conditions or rurality and that of urban
areas; the great and growing division in social classes where education is the means
towards wealth and economic opportunity, and where the poor and uneducated remain in
menial jobs at the lower level of the occupational ladder. Their access to wealth and
economic opportunity is restricted. The implications of this for the tourism sector are
HRD Strategy for the Tourism Sector : 31 March 2008 49
significant. A restricted labour pool is particularly disadvantageous to the tourism sector,
because, in many cases, this sector is not among the prime economic sectors where the
most educated of our population seek jobs and establish careers. Other implications
include: the prospect for developing tourism products in rural areas; the level of awareness
and service excellence to be expected among the poor who have no history or experience
being accommodated in hotels, for instance; the prospects of promotion for those who enter
the lower level occupations without adequate qualifications; and, among others, the
inclination of some employers in the sector to exploit the under-educated with low salaries,
poor working conditions and little job security. All of these have implications for the labour
pool that is available to the sector.
5.1.2 Economic
The fundamental education factors affecting the availability of labour in the tourism sector
are noted in the sub-section above. This sub-section of the chapter seeks to explore the
institutional factors in education which affect the availability of the appropriate level and
type of skills to the economy in general and to the tourism sector in particular. One must
first note that the tourism sector is diverse and requires a wide array of different skills. The
expectation is that, while industry provides training, the education sector will fulfill the skills
needs of the country. But this requires demand-led planning for educational programmes.
This is not generally the case, and, as a consequence the educational sector is criticized for
not really fulfilling the skills needs of some sectors of the economy, one of which is tourism.
Tourism as a sector is especially vulnerable. The average education of workers in the
sector is only 11 years, or an education level of grade 10 and below. This means that most
workers in the sector do not have a matric certificate; but even within the sector, only one in
seven workers have access to training. For its workers, the sector relies on many avenues
of training which currently exist; but the quality and capacity of many structures and
institutions where training options are available are not adequate. Formal educational
structures are numerous and fragmented and are accused of generally not meeting the
needs of industry. THETA, the tourism education and training authority under the Skills
Development Act, is generally accused of not meeting the needs of the industry, partly
because of its shallow reach into the industry, partly because of its low level of productivity,
and partly because of its lack of responsiveness to industry needs and circumstances.
There are few accredited training providers in the respective sub-sectors because of the
delay and expense in seeking accreditation; programmes offered by government agencies
such as DEAT and DTI, and those offered under government’s special programmes such
as TEP, JIPSA and EPWP, for instance, generally do not reach enough people to impact
the wide and growing demand for skills. In addition, the formal education and training
system is not sufficiently articulated or consistent in its curriculum to create the impact
needed; some training is of poor quality with inappropriate learning materials and facilities;
and, among others, many teachers and trainers in the business do not have industry
experience and are not appropriately qualified to teach.
The overall result is either restrictions in the level and quality in the production of skills, or
the structural misallocation of education training resources which misaligns the availability
of skills with the geographic dispersion of the sector’s employers. The sector responds with
its own in-house training. But this training is generally available only in large organizations
and in the few conglomerates in the sector. In SMMEs, for instance, which employ the
HRD Strategy for the Tourism Sector : 31 March 2008 50
majority of individuals in the sector, training is generally unavailable because of the
expense and because of their inability to remove their limited number of workers from their
productive tasks in order to participate in education and training. ABET is not widely
available to employees in the sector and recognition of prior learning is not generally
practiced. The end result is the significant unavailability of people with the appropriate level
and quality of skills.
5.1.3 Educational
As businesses and commercial enterprises in the sector, overall performance is affected by
a variety of economic factors; and, industry performance affects the demand and utilization
of skills. All evidence suggests that performance of the sector is expected to strengthen
with growth in the number of domestic and international tourists. This growth is expected to
lead to increased income generation and, among others, a higher demand for skills. But
the tourism sector is sensitive to a variety of external conditions which can affect its
performance, and consequently have an impact on the demand for skills. There are
significant grounds for anticipating growth – strategic marketing as outlined in the tourism
growth strategy; hosting the 2010 soccer world cup; and, among others, capital inputs that
expand and enhance the product base thereby increasing the competitiveness of the
sector. This will result in greater international tourist arrivals and a rise in tourism in the
domestic market. Many other factors confirm the expectation of growth and hence the
demand for skills. But this may not be the case, in light of global and local economic
conditions which may retard growth. The sensitivity of the tourism sector may lead to a
negative reaction to economic conditions. Increased oil prices globally, economic down
turn in major foreign markets, rising interest rates locally and issues relating to food
security, among others, can all have an impact on the tourism sector.
In addition to this, rising inflation is beginning to affect the basic necessities of life and
impact on the lives of people. Even now inflation is having an impact on the education
sector, making education unaffordable, leading to the decline in the supply of talent to the
industry. This may have the most significant affect on the tourism sector, partly because of
increased competition for the skills available, and partly because of the sector’s naturally
high turnover of staff. This situation is aggravated by the perception that tourism as a
sector is non-attractive to potential employees who are suitably qualified. It is perceived
that there are no opportunities for successful careers in the sector when compared with
other sectors; that wages are low, and wage differentials between operational staff and
managers are high; that there is a preponderance of unacceptable working conditions
which increase the incidence of job satisfaction among workers; that jobs are largely
temporary and seasonal and do not promote stability in employment; inclination to hire
foreigners at both the low and high end of the occupational ladder; and, among others, the
economic impact of restructuring, mergers, acquisitions and general sector adjustments to
current economic conditions may lead to retrenchments, increased workloads among staff
and decline in personal real income as a result of rising inflationary costs. As a
consequence, the sector may not be as competitive in attracting employees from a
declining pool of suitably qualified workers. Here, the decline results from withdrawals from
the industry and the possible decline in the pool of suitably qualified workers.
What then could be the response? Certainly, more strategic, relevant and appropriate
interventions in skills development must be made now.
HRD Strategy for the Tourism Sector : 31 March 2008 51
5.1.4 Employee Wellness Management
Hospitality businesses consider HIV and AIDS to be a significant driver of change in the
sector. It is estimated that 12% of the workforce in the industry is infected. The incidence
of HIV and AIDS, and the resulting ill health of workers are costly to the industry. Such
sickness results in both an increase in leave days and reduced productivity. It also places
more demand on businesses to manage their human resource complement in a manner
that will maintain high service excellence and sustain satisfactory levels of productivity.
Beyond this, and even more disruptive, is the level of withdrawals from the industry due to
sickness and death. This also depletes the labour pool.
What therefore, are the prospects for redress in mediating the impact of HIV and AIDS?
The rate of infection in South Africa is still on the increase, and HIV and AIDS do not
represent the only social problems such as enduring and increasing poverty, the overall
lack of high quality healthcare for the poor, the high cost of living and the incidence of
homelessness and limited household budgets as economic conditions change, the
increased cost of basic food items, and, among others, the high rates of unemployment and
lack of household income in rural areas all serve to create conditions where challenges
arise in maintaining good health. This lowers the productive working potential of the wealth
of human resources that are available in the country. Some form of response is urgently
needed.
The limited extent to which the sector is currently responding to the rising threat of labour
unavailability due to ill health is a matter of concern. First of all, many employees in the
sector are casual and temporary workers with no access to company-sponsored medical
aid, no access to income when they are ill and unable to show up at work, and no access to
health promotion interventions and clinical facilities within their places of employment.
Some contend that the margins are too low in the sector, and health-related support for
employees is unaffordable; some contend, on the other hand, that, with the wide availability
of cheap labour, employers do not have to be concerned about the impact of health related
issues on their respective businesses. Replacements for those who are ill could easily be
found, and, outsourcing, in any event, will shift the responsibility of health to the peripheral
companies which serve the sector. The approach is short sighted. If all abandon the sick
and helpless and if potentially productive workers are set aside due to ill health, then, the
productive potential of the labour force will decline with catastrophic impact on the overall
value of our human capital. We may well see the impact when it is too late.
5.1.5 Immigration, Emigration and Labour Mobility
The labour market in tourism is dynamic in respect to the mobility of labour; and this
mobility affects the availability of workers to the industry. Three aspects of labour mobility
will be discussed: the high level of urbanization; the effect of immigration; and the effect of
emigration. The sum effect of these factors is sometimes difficult to determine since there
is variability by sub-sector, by geographic region, the general practices among particular
businesses in the sector; by occupational level and by differentials in wages.
Notwithstanding, the availability of labour is affected by labour mobility and the associated
factors which create variability within the industry.
HRD Strategy for the Tourism Sector : 31 March 2008 52
The first challenge here is the growth and development in opportunity in most urban areas,
and the consequent flight of people from rural areas into cities to seek employment, income
and relief from the challenges of maintaining livelihoods for the rural poor. This flight
occurs among both semi literates and the school dropouts and among graduates from
technical and regular high schools that have been successful in matric exams. With little
opportunity for higher education and viable employment in rural communities, many areas
with valued tourism assets remain without an adequate base of human resources to drive
growth when economic opportunities arise. The pervasive complaint among those who
prepare local economic development strategies is the inadequacy of human resources to
drive growth in rural communities. Valued projects become infeasible because of the
unavailability of people. Urban areas, on the other hand, tend to experience conditions of
over supply, with the consequences on wages and working conditions alluded to in the
previous sub-section.
The situation is then affected by factors related to immigration and emigration. Both can
have significant impact on the structure and behaviour of the labour market in tourism.
First, there are the legal and illegal immigrants who have emigrated from neighbouring
countries in the SADC region. While some of them are well educated and can fill gaps in
the market where skills are scarce, the majority of them are semi-skilled and unskilled.
Again, the immigrants move to major city centres where any form of menial labour will
suffice; and, if they are illegally in the country, opportunities are easier for them to evade
the law. It is a pool of labour to the sector that is unaccounted for, and is used mainly at the
lowest levels of the occupational ladder. This labour pool presents a distorted draw effect
on employment at this level. Since they are willing to work for lower wages, the wage
structure at this level remains deflated. South African citizens’ competency for employment
at this level may not be successful because their employment demands may be higher.
They remain unemployed. In this regard, some responsibility must be taken by employers
in the industry. While lower labour cost could maximize profitability, the long term effect is
the continued depletion in the overall value of human capital for the sector. Issues arise
because in some cases employers see immigrants of this nature as a windfall: they do not
have to invest in extensive training and career development; labour cost is low; there is a
reduced threat of industrial relations challenges; and such employees could be hired and
fired at will providing a degree of flexibility in managing the company’s pool of labour. The
culture of employment relations at this level, in some communities, remain devoid of social
responsibility, show little concern for the sector’s human capital in the long term and little
awareness of the effect of this culture of employment on service excellence in the industry.
But this is not the only aspect of immigration. The labour pool of foreign workers is also
comprised of highly skilled workers, particularly at the managerial levels. Here
multinationals may bring in selected managers in whom they have confidence; or, in some
cases, local companies, unable to find qualified workers locally, retain the services of an
illegal foreign worker. This is particularly so in occupations such as chefs and caterers, and
in tourist guiding where indigenous foreign language speakers are preferred. There is
some sense that the current unavailability of good managerial talent in the sector has
arisen from our past dependence on expatriates who have now departed. Efforts have
been made to identify some of these scarce and critical skills and to engage in concerted
interventions to build a greater pool of talent locally. Such efforts have not yet shown
HRD Strategy for the Tourism Sector : 31 March 2008 53
significant signs of success. Structural factors in the labour market for scarce skills still
affect the availability of critical talent to the industry. For instance, hospitality businesses in
areas outside of the major cities and tourism centres still report difficulty in finding skilled
managers.
Is it possible, therefore, that all employers in the sector could subscribe to a commitment or
credo to vigilantly build a suitable pool of local talent, even though it may be more costly in
the short term?
Such a credo is necessary if one considers the current brain drain which creams the top of
the sector’s talent. Top managers and other professionals in the sector emigrate to
Australia, New Zealand, Europe and the US where salaries are higher and where working
conditions are said to be more attractive. In fact, many of these countries actively recruit
talent from the South African tourism industry. Australia, for instance, makes a concerted
effort to recruit the country’s best tourism talent. The rate at which the highly skilled are
leaving for greener pastures is said to have increased. The tourism sector’s Skills Audit
reports, for instance, that training providers have indicated that up to 16% of students, on
average, leave South Africa to take up international opportunities. The Skills Audit reports
further, that 82% of the employers surveyed believe that this trend is likely to increase in
the next five years.
The fact is that exact figures are unavailable, and it is therefore difficult to determine the
short and long term impact on both employment in the sector, and the sector’s performance
and competitiveness. In the end, we have little alternative but to build and sustain a local
pool of talent to drive growth. But this is not all. Employment practices, in some corners of
the sector, must change so that we build rather than dilute the quality of the nation’s labour
pool.
5.1.6 Planning and Management
Planning and management of the sector’s human capital is not a simple matter. It is about
bringing the right factors together in order to ensure that all available resources are properly
applied to the task of building and sustaining human capital for the performance and
competitiveness of the sector. Crafting human capital management is the answer. But the
formation and efficient utilization of human resources for the sector is constrained by the
manner in which its human capital is planned and managed. The typical response is to
train more to fill the gap, and to use a variation of related interventions to ensure that more
training is undertaken. This has resulted in the preponderance of training in a highly
fragmented and uncontrolled training enterprise where quality is difficult to manage, supply
is difficult to control and large sections of the country’s geography cannot be served. While
the “train more” response may be correct, perhaps this response could be complemented
with a commitment to train better, smarter and more strategically. In this light, the
fundamental issue in education and training in the sector remains the manner in which the
sector’s human capital is planned and managed.
There are several constraining factors which affect and limit the comprehensiveness and
quality of planning and management for the sector. The primary ones among them are:
the inadequacy and general unavailability of information for planning; the fragmentation of
governance structures which make it difficult to manage an education and training function
in such a complex and volatile sector; the inadequacy of reporting structures for generating
HRD Strategy for the Tourism Sector : 31 March 2008 54
training data; and the inclination to manage training in the industry without the full
involvement of employers. Only these will be discussed below merely as examples of the
factors which constrain.
The most significant among all these factors is the unavailability of complete, correct and
appropriate information upon which strategic decisions could be made. And here, we do
not only refer to data on education and training only but to a host of other data which will
present a more complete picture for strategic interventions; statistical data on industrial
and labour market surveys to monitor trends in the sector; demographic and social factors
in order to monitor the growth and mobility patterns of the population and the social
conditions under which they live; the rate and location of capital injection into the sector in
order to assess the input of developments by specific geographic regions; wage surveys
and surveys of employment practices in the sector and the nature and quality of
infrastructure development for providing education and training. Here, it is necessary to
combine economic and employment data, social and demographic data and data on the
contribution of education and training so that a more complete picture can be crafted about
what is necessary to promote more effective human capital development in the sector.
Much statistical data is available in the tourism sector from the efforts of firms such as
Prodigy and Grant Thornton, among others. But often this data is not integrated and
combined in ways that will present the whole picture of what should inform the wide and
diverse scope of training interventions. THETA generates information from its WSPs. This
information is potentially valuable, but the data generated is not representative of the
sector. Of the 41,740 employers in the sector, only 20,166 or 48% are registered with
THETA, and of those registered, only 751 or 1.8% submit WSPs. Data based on WSPs
alone is therefore not useful for making judgements about the education and training for the
sector as a whole. Of the 28,000 employers in the hospitality sub-sector of THETA about
14,828 or 53% are registered, but still only 456 or 1.6% submit WSPs.
Economic and demographic information of high value exists; though not complete, this data
is generally not in an integrated manner so that a more complete set of information is used
to inform strategic decisions. The wide range of government organizations involved in the
tourism sector could, together, produce a valuable set of useful information about the
sector’s status, performance and prospects in education and training. But, there is no
central point in government that is assigned to retrieve, collect and process a combined set
of data. Generally, each department keeps its processes and the data generated for its
own use. The end result is that overall planning and management for the sector is
constrained.
Education and training for the sector is constituted of a complex body of public and private
entities which undertake the responsibility to grow the sector’s skills base. It includes
Departments of Education, THETA, DEAT and other government departments, in addition
to private providers of training including the training undertaken by large employers. The
complexity in the sector’s education and training presents significant issues in planning and
management. Among the issues are that: there are several different points of governance
authority which creates fragmentation; there is no common format for reporting on
education and training; achievements which generate information that cannot be
aggregated; policies which govern different streams of training may differ, leading to
different priorities and approaches; and, among others, the content and process of training
HRD Strategy for the Tourism Sector : 31 March 2008 55
in the same course may differ widely among training entities. Hence standards are not the
same. In spite of this, there are no effective integrated mechanisms to streamline the
diverse arrangements for training. Many in the field indicate that this is essentially the
mandate of THETA; but THETA’s scope of influence and range of operational concern is
much too narrow to serve the sector well. THETA limits its role to the regulation of
leaderships and skills programmes, and thereby fails to take account of the majority of
training in the sector which occurs in many different institutions and which is delivered in
many different forms. Effective planning and management for the sector must overcome
both its complexities and its inconsistencies in order to streamline the overall system for
producing the sector’s skilled people.
In reflecting on the past, many in the field have suggested that effective leadership in the
sector could be driven by the industry. It is noted that leadership by industry leaders can
create the impetus for change. But while industry’s ongoing input and leadership support is
essential to any progress, the developments in the sector should be government-led,
especially since so much of the current education and training function for tourism growth is
lodged in the public sector. THETA, as the designated education and training authority for
the sector, is constituted of labour unions and employers, who in theory should provide
leadership in taking education and training decisions which will benefit the sector. But
THETA’s leadership role in this regard has not materialized. Many in the industry contend
that employers who can be drivers of change in the sector are not represented on the
THETA board and have no significant role in reshaping the education and training system
for the sector. Some efforts must be made to more fully integrate employers in the planning
and management of human capital formation and utilization in the sector.
5.1.7 Social Factors
Unlike other countries, human capital formation in South Africa is deeply rooted in a well-
defined and vigorously pursued agenda of transformation; and, not unexpectedly, this
agenda is intricately woven into the fabric of policy, practice and strategy in pursuing the
sector’s growth and development objectives. But the agenda of transformation is even
more critical in tourism as an economic sector, than it, perhaps, is in other sectors of the
economy. The 1996 White Paper on the development of tourism in South Africa makes the
ideal of transformation the centerpiece of its agenda. In light of the past inequities which
have resulted in the under-education of the masses, and which have consequently led to
lives of unemployment, poverty, hunger and chronic hardship in many local communities,
the tourism sector is seen as a catalyst for human development and a new frontier of
opportunity for previously neglected groups. It is also perceived as a sector that is within
reach of all and therefore most accessible for changing the lives of many in local
communities.
But the transformation agenda in tourism, if properly applied, will have some effect on the
manner in which skills are developed, the places that are targeted for skills development
and the rate at which skilled people are made available to the economy. Properly applying
the agenda will mean assigning priority to the development of the skills base in rural and
poor communities and increasing the availability of skills to tourism businesses in
depressed areas. Generating new skills in conditions of poverty, unemployment and under-
education, among others, is not a simple task. But if it must happen its structures and
programming must be innovative and fresh. Here, efforts will be made to bring opportunity
HRD Strategy for the Tourism Sector : 31 March 2008 56
to those who have not had access through the normal routes of education and training
either because of poor educational preparation, unavailability of funds or the inaccessibility
of adequate facilities for education and training in areas of need. Special funding packages
must be developed to render support to learners and institutions; bridging programmes
must be established so that the educationally deprived can have access to learning and
skills development; employers will have to lend a hand in creating new opportunities in new
places for internships, learnerships and work experience programmes; educational
institutions will have to bend their rules and alter their programming to promote accessibility
to the non-traditional learner and, among others, community structures must be called to
render support in building a climate of hope, confidence and personal achievement. For
communities in crises, one stakeholder cannot meet the demand with a single mode of
programming. The solution must in the collective effort to make it work.
Truly transformational programming for skills development in the sector will create a new
stream of talent in places where the most benefit could be derived both socially and
economically. It will not come without effort, but the rewards can be immense.
5.1.8 Industry Practice
Human capital formation for the tourism sector must take into account the practices by
businesses in the sector which may either promote or restrict the flow of talent into the
sector. Then, in spite of the education and training conducted for occupations in the sector,
if the practices of its businesses deter individuals from entry into those occupations then the
training will be of no value to the industry and skills deficits in the sector will remain.
Human capital formation is not a one-sided affair. Allowance must be made and initiatives
must be taken for properly prepared talent to enter the correct occupational slots.
Employers must make entry into the sector’s occupations attractive. But, to some extent,
this is not the case in the tourism sector. In general, the tourism industry is perceived to be
less attractive, particularly for candidates of BEE. The sector has a low appeal in the
market in which it competes for labour, and such negative perceptions are beginning to
define the “nature of the industry”.
The first issue that arises is the level of wages earned in the sector. In general, wages in
the tourism industry are perceived to be low. It is perceived that tourism is not able to offer
the same salaries as other sectors; and, as a result, skilled people who are prepared for the
sector take up employment elsewhere where earnings are higher. At the level of unskilled
and semi-skilled jobs in the sector, the culture of low wages and poor working conditions is
well known, and, unfortunately it is equally well tolerated by those who have no other
option. It was noted, that even with sectoral wage determination by the Department of
Labour, the practices in the sector have not changed. Paying low wages is just too
attractive and profitable for some businesses in the sector when there is a large pool of
unemployed, poor, generally uneducated and largely deprived individuals who constitute
the economy’s readily available cheap labour.
But the low wages and generally inadequate incentive and reward system is not the only
issue. A variety of HRD deficits arise. Working conditions are noted as poor, and the level
of benefits in the industry generally unacceptable; entry requirements are sometimes too
demanding and restrictive and therefore limit entry into the industry; out-sourcing, though
efficient, builds insecurity about job intention; hiring practices are said to be inappropriate
HRD Strategy for the Tourism Sector : 31 March 2008 57
and serve to deny access to many; and among others, there is little upliftment opportunities
for black staff, especially women. Some believe that businesses in the sector are too
reliant on practical experiences giving less weight to certificates and other forms of formal
qualifications. This results from a belief in the sector that the formal education and training
establishment is unable to prepare people who are “industry ready” and people who can be
productive from the initial point of hire. Another response of businesses in this regard is to
focus on in-house training rather then paying external agents for training services.
But the sector is so diverse and complex that sweeping generalization will rarely be true for
all businesses. For instance, on the one hand, the sector is said to have a slow response
to transformational initiatives; but it is also true that many businesses in the sector have
embraced BEE as the opportunity to transform their business. Yet, if negative perceptions
persist, the tourism industry could be labeled negatively and the sector will not be
successful in retaining the talent that other sectors need.
Industry practices, particularly in relation to HRM, can totally nullify the gains made in
human capital formation for the sector. In spite of the availability of jobs, some potential
employees may choose not to seek employment because of low wages and their
perception of employment conditions. They may then enter other sectors in which they can
earn more and reach further career-wise. In fact, some contend, that the scarcity of critical
skills in the sector may not be due to the absence of these critical skills in the economy.
The chef you need is now employed as a personal assistant and the bar tender is in the
construction industry. With few exceptions, most of the scarce and critical skills in tourism
are skills that are needed in other sectors of the economy. This, in fact, may be the core of
the scarce skills problem. The tourism industry is largely uncompetitive in the open market
for scarce and critical skills. If undesirable practices prevail, then there will be absence of
skills in the sector in spite of the availability of the said skills in the economy. There must
be some concern in the industry that its own practices may have contributed to the
unavailability of the skilled labour needed to sustain and enhance its performance.
5.1.9 Policy Leadership and Governance
Tourism in South Africa is government-led, industry-driven and community-based. Tourism
strategy, therefore, cannot be driven by industry and orchestrated in communities without
the leadership to be exercised by government. Government provides leadership through
policy development and management, through funding support or tax relief as financial
incentives, through technical support and guidance in support of the implementation of
strategic initiatives, and through the establishment of appropriate governance and
administrative structures to ensure accountability and delivery. Although these are only a
few of the instruments that are generally used, they represent a package of options for
making things happen. But in its exercise of leadership, all these policy instruments are
crafted into a cohesive and streamlined programme of intervention that is designed to make
a difference. This manner of leadership is not a “one shot affair”. The exercise of
leadership and the crafting and structuring of development interventions for the sector must
be undertaken from day to day. The performance of the sector is dependent on the quality
of this leadership. Human capital formation for the sector will be constrained and will
under-perform without this leadership.
HRD Strategy for the Tourism Sector : 31 March 2008 58
Currently this manner of leadership is not available to the sector. While the essential policy
instruments for this leadership are in place, the capacity to craft disparate pieces into a
cohesive and articulated programme of intervention is not yet in place. Fragmentation in
the governance of the sector abounds. There is vertical fragmentation in terms of the
manner in which the activities of the different spheres of government are delinked, and in
terms of the disconnection between overall strategic priorities in the sector and the
structures, resources and support that are available to communities to deliver on these
priorities. There is also some degree of horizontal fragmentation in terms of the lack of an
adequate level of collaboration between different governmental bodies within each sphere
of government. For instance, many national departments are involved in tourism and
collaboration exists among many of them, not all. But such collaboration, when it occurs, is
generally strategic and not operational. All relevant parties or stakeholders at the national
level do not generally come to the table. This results in a ripple effect of discord from the
national level to the level of community structures and organizations.
Leadership and governance of the sector is as complex as the sector is diverse. It will not
happen by chance. It must be properly planned and orchestrated so that it will make a
difference. The critical issue to be resolved here is that of determining how stakeholders
will share responsibilities in a reconfigured system for integrated delivery of skills
development in the sector. At all levels of this delivery system industry partners must have
a role. As a major stakeholder, the industry must determine what responsibility it is willing
to undertake.
5.1.10 History and Tradition
A nation’s history, beliefs and traditions represent the cultural medium within which all its
other undertakings take effect. What we do as a society is influenced and shaped by who
we are as a people and whom we have become as a result our unique history and our well-
embedded traditions. Over time, as the present continues to rewrite our history we reshape
ourselves and slowly craft a new society and a new people. History and tradition matter in
many ways. As a result, the process of human capital formation for the economy as a
whole, and for the sector, in particular, cannot escape the effect of history and the impact of
the beliefs and traditions we bring to the decisions we take at the workplace. These
decisions and the resulting behaviour are not without impact on our human resource pool.
While our strength, vigour and convictions bring solidarity and cohesion in the workplace,
our prejudices are destructive; and all manner of prejudice affects the many human
resource decisions we take – whom we hire, who gets promotion, who is retrenched, who
has access to management training and careers, and so forth. Sometimes, and for some of
us, it is our culturally derived attitude toward woman and our incorrect perceptions about
what they could and should do. More often than not it is our racial prejudices and our
beliefs about who people are and what they can and will do in the workplace as a result of
their race. Sometimes we hire and promote in order to create organizational environments
to maintain a sense of safety and psychological security. The effect on our human
resource pool in the sector is astounding. When race is a factor in where we are employed,
what position we hold and what careers we have access to, then we cut our pool of
available talent by two thirds, perhaps. We increase unhappiness and, as a result, labour
mobility within the sector as people change jobs to find places of greater comfort. The
complexities created in human capital management are beyond our ability to calculate
HRD Strategy for the Tourism Sector : 31 March 2008 59
because so much of our actions are hidden and so many of our decisions are unchallenged
as victims voluntarily and quietly retreat.
Behaviour will not change through policy because values cannot be legislated. Behaviour
will change through the collective social conscience of the sector that will make all reflect
on what we have done with all that we have been given. As we rewrite our history from day
to day, perhaps we will learn to find a way.
5.1.11 Conclusion
Human capital formation and use is not a multi-channel conduit where skills flow smoothly
through to places of need. It is a complex and dynamic set of interactions among a myriad
of factors which result in the level of availability of skills at the right time, in the right place
and with the right set of qualifications and experience. The complexity in crafting human
capital management lies, not in the unending provision of training, but in the manner in
which different aspects of the tourism infrastructure are built, adjusted, shaped and aligned
so as to ensure all relevant factors work toward a common good for education and training.
HRD Strategy for the Tourism Sector : 31 March 2008 60
6. THE CONTEXT OF HRD IN TOURISM
6.1 Introduction and Purpose
Human resource development in tourism is a diverse and complex terrain to manoeuvre.
This stems partly from the complexity of tourism as a sector and partly from the currently
disconnected structures for skills development. In the wider body of tourism, there are a
number of actors and stakeholders, an extensive and diverse policy framework, an array of
intergovernmental bodies and initiatives, and strategic frameworks and priorities to govern
every aspect of the sector’s undertaking. In respect to HRD, the policy framework is also
well established, but institutional structures for delivery are still diverse, uncoordinated and
largely underproductive. The purpose of this chapter, therefore, is to shed light on the
structure and context of HRD in the tourism sector and to highlight the issues and
circumstances which may require strategic intervention. Because of the complexity of the
sector, the chapter does not seek to be fully comprehensive and detailed. Rather, it seeks
to present an overall picture so that the mandate for an HRD strategy could be placed in its
respective context, and the strategic imperatives which emerge from our analysis could be
more readily understood where possible. The chapter uses available data to statistically
describe what current circumstances are. Yet, this data is rarely complete and sometimes
not accurate. As a result, statistical data is supplemented with comments and ideas which
have emerged from the interviews conducted. In the end, all we seek to do is to present as
accurate a description as we can of the context and circumstance of HRD in tourism where
strategic intervention is necessary.
Organization of the Chapter
The remaining portion of the chapter is divided into four separate sub-sections as follows:
the structure of HRD in the tourism, sector; training supply and the availability of skills;
training demand and the utilization of skills; the infrastructure for delivery. Each sub-section
will be addressed in turn.
6.2 Structure of HRD in the Tourism Sector
HRD in the tourism sector is complex, partly because of the variety of actors and
stakeholders in the sector, and partly because the sector itself is so diverse, so wide in
scope and so integrated with other policy spheres and economic activities. But in order to
plan for HRD in the sector, it is necessary to understand the structure and dynamics of
education and training operations in the sector. Figure 3 on the next page seeks to sketch
the essential features of the structure of HRD in the sector. This is not a simple task, and,
as a result, all the features of its structure may not be represented. The structure, however,
highlights several critical features of the institutional arrangements for the delivery of HRD
nationally. Each of these features will be discussed separately as follows: The policy
framework; the spheres of government; the stakeholders and private bodies and
associations; frameworks for coordination and inter-governmental relations, and among
others, consideration for the frontline of delivery – the community. The structure in Figure 3
seeks to also highlight and comment on the structure through which policy takes effect in
communities.
HRD Strategy for the Tourism Sector : 31 March 2008 61
Figure 3: KEY ELEMENTS OF THE STRUCTURE OF HUMAN RESOURCE DEVELOPMENT IN THE
SECTOR
NATIONAL POLICY FRAMEWORK & STRATEGIC AGENDA Stakeholders
& Private
Tourism Skills Dev Economic Dev & Public Service Bodies &
Transformation Transformation Associations
SPHERES
White Paper on Tourism; Skills Dev Act; Skills Dev & Integrated tourism Batho Pele White Paper; influencing
OF Growth Strategy ; GCP2 Services Act; National Skills entrepreneurship White Paper on Development
GOVT study; Tourism Second Dev Strategy 2; A Nation at support programme Transforming the Public of Sector
Economy Strategy; Work – HRD strategy of TEP; Transformation Service; White Paper on
Tourism Act, Tourism Trade & South Africa; HRD Strategy strategy for SA; BBBEE New Employment Policy for Enterprises
Travelers Charter, Tourism for the Public Service; Strategy; Tourism BEE the Public Service;
Airlift Strategy, Tourism Land White Paper on Public Charter Council; Employment Equity Act Unions
Transport Strategy & others Service Education & Tourism Infrastructure
Training; SAQA; Higher Investment Framework
Education Act
National Institutional Framework and Governance arrangements for Tourism Development e.g. TBCSA
MIPTEC, MINMEC, National Skills Development Forum FEDHASA
SAAHS
HILG
DEAT DOL Support TESA
STAKEHOLDERS
GOVERNMENT &
• Tourism Depts in Private Private SAACI
NATIONAL
National • TEPCO THETA Govt Industry Training NTTPF
Dept of • Eco- Board DTI; Public Training Institutions
Chamber Works centrally SATSA
Education tourism Centrally
(Tourism Committees DPLG; DoT coord. by coordinated
for Operations SALGA Head Office SACCAWU
protected committees Foreign HIAWU
areas) Affairs; SAT
(Poor performance, inadequate budgets, lack of appropriate policy, structures & strategies)
Provincial
Housed in Chapters
STAKEHOLDERS
AUTHORITIES
Provincial units in Provincial Based on of national
PROVINCIAL
Dept of different Skills Dev location of Based on associations
AND
Education Depts Forum company Location
• Econ facilities of Provincial
FET Affairs PGDS facilities structures of
HEIs • Local Forum unions
Gvt
Based on Local
MUNICIPAL & LOCAL
Public & location of Varied structures of
STAKEHOLDERS
AUTHORITIES &
GOVERNMENT
Local and Private company location organizations
Regional Tourism Training facilitator &
schools & Projects Providers Sparse Local reps of
institutions No Use of geographic national
presence geographically location association of
of THETA distributed Unions
private
providers
Tourism Tourism Facilities Tourism Skills Tourism Training
TOURISM AUTHORITIES &
COMMUNITIES, LOCAL
Products & Services Supply Dynamics Entities Community
Structures
STAKEHOLDERS
• Sites as product • Boards & • Will be particular to • Intuitions
Community
• People as product associations community and • High Schools Development
• Events as product • Information Centres occupation • FET Workers
• Safety & security • Tour Guide • Over supply • Technikons
as product Operations • Scarce skills • University
• Hotels, B&Bs • Wage structures • Private Providers
• Restaurants, Night • Industry training
Clubs, Bars & others
Common Principles Governing Training and Service Delivery in the Sector
HRD Strategy for the Tourism Sector : 31 March 2008 62
6.2.1 The Policy Framework
The policy framework for tourism, and hence for HRD in tourism, is the body of rules,
regulations, planning and strategies which guide and govern the activities taken in the
sector to manage tourism and effect its growth. HRD in tourism is therefore affected by
all relevant policies affecting tourism as a sector, and those affecting the public service
as a whole; this is in addition to the policies which govern skills development and
education and training. The body of policy considerations here is as wide as the
number of governmental agencies involved in managing the activities in the sector.
Because of the scope and diversity of policy influence, the critical issue here is
rationalization. Rationalization refers to the extent to which the practical implications of
policy for HRD in the sector are properly interrogated and streamlined into a cohesive
framework of action. There are two aspects of this. The first is the determination of the
HRD implication of all related policies; and, the second is the alignment and
rationalization of policies related to education and training in the sector. In respect to
the latter, it is necessary to ensure that the Skills Development Act, the Higher
Education Act, SAQA policies and policies governing other education and training
undertakings bring coherence and unity in delivery rather than create gaps, duplication
and inconsistencies.
6.2.2 The Spheres of Government
Policy interventions are exercised and are brought into reality through the activities and
actions of government agencies in the 3 spheres of government – national, provincial
and local. In respect to tourism, this is a complicated affair. Firstly, because of the
number of agencies and departments involved in the tourism sector at all levels of
government. Many are involved in the management of the sector’s business; but, in
addition, many are involved in education and training for the sector. While the strength
of this scope of involvement is the adequacy of coverage and the differentiation of
responsibilities, the inherent weakness is the complexity and cumbersome nature of
coordination and alignment of activities. This becomes a more critical issue when one
observes that the role and function of national agencies and departments could define
the nature and effectiveness of activities in the other spheres of government. Within the
sector, fragmentation and misalignment at the top sometimes filters right through to
provincial and local authorities. This is made even more complicated by the fact that
there is not a well established and streamlined governmental structure in tourism which
is headed by DEAT and structured for policy implementation down to communities. The
tourism function is a competence of both national and provincial governments; and,
while tourism policy and strategy is framed nationally, there are many different bodies
and institutional arrangements through which implementation take place in the different
spheres of government.
The critical consideration here is that structural misalignment and disjunctures
compromise the effectiveness and efficiency with which policy priorities are affected and
are eventually realized in communities and the lives of people.
HRD Strategy for the Tourism Sector : 31 March 2008 63
6.2.3 Stakeholders and Private Bodies
One of the unique features of tourism as a sector, is not only the number of private
bodies and associations which exist in the sector, but the critical role these bodies and
associations play in the governance and operation of the sector’s activities. There is a
general understanding that tourism is government-led, private sector-driven and
community-based. The private bodies and associations take leadership in enabling the
private sector to “drive” tourism and realize our vision of tourism growth and
development. These bodies are generally associations of employers representing
different aspects of the sector’s business and association of employees in the sector
who use their employee organizations to seek redress and generally protect their rights
and interest as employees. These bodies play a critical role in the operation and
performance of the sector. Most are well-organized nationally with provincial chapters
in various provinces. In most cases, national structures are more organized and more
active than provincial chapters; and, in almost all cases, these bodies are not
represented at the level of local government. Many of the bodies were conceived for
the purpose of advancing industry interest in their respective sub-sections and lobbying
and influencing government in the development of policies which will promote rather
than constrain the business activities and performance of the sector.
The issue here is the sheer number of stakeholders who seek to advance their interest
in the sector. At some point, the independent activity of such a diverse group could
lead to fragmentation of the sector’s interest in a manner that could be counter-
productive. However, the critical role played by these bodies and associations in the
performance of the sector cannot be denied. The challenge faced is blending roles and
creating linkages which maximize the collective contributions these bodies can make.
6.2.4 Frameworks for Coordination and Intergovernmental Relations
With such diverse and complex institutional arrangements, it is necessary to establish
structures and systems to ensure coordination and to ensure coherence in undertaking
the business of the sector. In this respect, the roles of the THETA Board, the National
Skills Development Forum and that of MIPTEC and MINMEC are critical. Even so,
skills development in the sector is not sufficiently streamlined and coordinated as
education and training in the sector is managed through two distinctly different centres
of power, the National Department of Education and the Department of Labour. These
are in addition to the myriad of other agencies and bodies that are involved in education
and training in the sector. The issue here is the manner in which the impact of training
resources is maximized to the benefit of the sector, and the extent to which strategy can
govern the activities of the sector. This is only possible with effective coordination and
inter-governmental relations. There is still room for progress in this area.
6.2.5 The Community - Frontline of Delivery
Tourism is community-based. This, in effect means that our tourism products are
located in communities, and, as a result, our delivery strengths should reside with
communities. Tourism facilities and services, tourism training entities and tourism
capacity in general should be largely community-based. Understanding possibilities for
and constraints upon delivery should also be calculated and assessed on the basis of
circumstances in the community. The social beneficiaries of tourism within our agenda
HRD Strategy for the Tourism Sector : 31 March 2008 64
of transformation are based in communities. In effect, most of the capacity for delivery
in the sector should reside in communities. This, in fact, is not the case. The
community is institutionally, perhaps, the weakest link in the chain of delivery. Much
effort must be made to build capacity to deliver in the respective local communities,
particularly those that are targeted for tourism growth and development.
6.3 The Supply and Availability of Skills
The supply of skilled people to the sector comes from a variety of sources. Most come
from education and training institutions (public and private); but others come from the
learnerships administered by THETA and other SETAs, from special programmes run by
government agencies and semi-private bodies such as DEAT, DTI, JIPSA and TEP, and
from training programmes run by employers in the industry. Foreigners come into the
market both at higher and managerial jobs, and as lower end operational and unskilled or
semi-skilled workers. Because of the lack of data, an analysis of the total annual skills
supply to the sector is currently unavailable. But data available through THETA gives
some indication of the overall level of supply on an annual basis. Table 15 shows the
number of learners supplied to the sector by all training providers from 2004 to 2006. The
highest number of learners is supplied in Hospitality as one of the largest sub-sectors. No
details are available on the number supplied by occupational categories or by sector-
related education programmes. And, again, no data is available on the geographic
dispersion of supply by occupational or educational categories. This, in fact, means that,
overall, we have not really interrogated the dynamics of skills supply to the sector in
relation to the sector demand as specified by the respective sub-sectors and by
geographic regions or zones.
Table 15: LEARNERS SUPPLIED TO SECTOR
SECTOR 2004 2005 2006
Hospitality
14,698 16,566 15,226
Tourism & Travel
4,260 4,088 4,181
Sport, Recreation & Fitness
3,172 3,328 3,030
Gaming & Lotteries
No data 996 1,564
Conservation & Tourist Guiding
368 997 1,145
Source: Table reconstructed from Sector Skills Plan 2008/09
Another valuable piece of learner supply data available is that on enrollment, completion
and employment rates for learners in the respective sub-sectors of tourism. Table 16
shows enrolment, completion and employment rates for 2005 and 2006. The data shows
that the majority of learners who complete programmes in the sector become employed,
and, the annual production of learners for each sub-sector is not constricted. Again,
without data on actual areas of training and employment, this data is difficult to interpret
and can hardly be used as a basis for action.
HRD Strategy for the Tourism Sector : 31 March 2008 65
Table 16: NUMBER OF LEARNERS ENROLLED, COMPLETED AND EMPLOYED
2005 2006
SECTOR % %
ENROLLED COMPLETED EMPLOYED ENROLLED COMPLETED EMPLOYED
Hospitality
2,569 2,510 82 2,388 2,307 84
Tourism & Travel
682 618 79 697 632 82
Sport, Recreation &
563 491 95 471 447 93
Fitness
Gaming & Lotteries
398 249 - 306 391 -
Conservation &
178 176 37 204 202 50
Tourist Guiding
Source: Table reconstructed from Sector Skills Plan 2008/09
6.4 Skills Demand for the Sector
Some notion of skills demand in the sector is reflected in Table 17. The table does not
present the full profile of skills for the sector, but gives some indication of the critical
occupations in the sector, the occupational needs and the critical skills needed. In each of
the sub-sectors identified, there are critical skills deficits, and the areas of communication,
customer and guest relations and languages are the most common areas where generic
skills are unavailable. The major areas in which generic skills are absent are noted in
Table 18. There are 4 areas: leadership and management, information technology;
customer service and languages. The specific skills required in each of these areas are
noted in the table.
In light of such skills deficits there are many areas in which positions are difficult to fill in
each of the respective sub-sectors of the tourism sector. The most notable of these “hard
to fill” positions are presented in Table 19. Again, the same scenario tends to play out
between the tables. Areas of critical skills deficit result in critical positions in the sector
remaining vacant.
HRD Strategy for the Tourism Sector : 31 March 2008 66
Table 17: CRITICAL SKILLS NEEDED
OCCUPATIONAL CRITICAL SKILLS NEEDED IN
SECTOR OCCUPATIONS NEEDS COMMENTS
SECTOR
# %
Chefs & Cooks 24,100 18%
• Customer Service • Largest sub-
Waitrons 23,500 18% • Foreign Languages sector with 67%
• Communication Skills employers and
Managers 8,000 6% • Service provider management 77% employees
• Services in
Hospitality
• Outsourcing and procurement
Cashiers 7,800 6% management sector generally
• Service provider management outsourced
Sales People - - • Customer/guest relations
Front of House - -
Reception
Financial Managers - -
HR/IR - -
Professionals
Travel Consultants 3,150 35%
• Leadership & management • Skills shortages
Bookkeepers 900 30% • GPS – central reservation training not a problem in
• Negotiation this sector
• Business management • Heavy weight
• Financial management
Tourism & Travel
Operations 800 9% given to practical
Managers • Marketing experience
• Languages • Employers
Tour Operators 600 7% • Communication skills provide
• Trade craft skills induction
Supervisors 450 5% • Ticketing and product knowledge training
• Geographical knowledge • Trend for
qualified and
• Sales skills
Tour Drivers - experienced
• IT (internet, e-commerce)
employees to
• Writing skills
Tour Managers - open their own
• Stress & time management establishment
• Development of tourism packages • Fewer black
• Product development employees
Tourist Guides 1,300 7%
• Customer service/guest relations • Sector draws
• National resource management employees who
Conservation and Tourist
• Knowledge of ecological resources are highly
Supervisors/ 1,100 6% and processed educated
Managers/CGOs • Decision making and research skills • Most people in
• Environmental legislation and legal sector in lower
Guiding
frameworks occupational
• management and leadership categories
Gaming Rangers 1,000 5% • Etiquette and protocol
• Air quality management
• Waste management
• Marine and coastal management
Sales - -
• Languages
• Narration & interpretation skills
• Environmental assessments
• Geographical information systems
• Site guiding
HRD Strategy for the Tourism Sector : 31 March 2008 67
OCCUPATIONAL CRITICAL SKILLS NEEDED IN
SECTOR OCCUPATIONS NEEDS COMMENTS
SECTOR
# %
Taxidermist - - • Indigenous plan science
• Wetland scientists and wetland
management
• Participatory rural approach
Source: Table reconstructed from Sector Skills Plan 2008/09
Table 18: GENERIC SKILLS NEEDED
SKILL AREAS SPECIFIC SKILLS COMMENTS
• Business Management • Many courses now available but
• Financial Management scope and content differ.
Leadership and • Coaching and Mentoring • Management is a priority of all
• Marketing levels, and particularly
Management
• Supervision management to government
• Outsourcing and Procurement officials at all levels.
• Project Management • Need is great in the informal
• Industrial Relations sector and with SMMEs.
• Service Provider Management
• Negotiation Skills
• Supply Chain Management
• Office Management
• Internet • This is fundamental for success
Information Technology • E-mail in the field, and critical at most
• Information Management levels in all sectors.
• Specific software used in • Dynamic field. Need to keep up
various sub-sectors with available technology.
• Basis for competitive edge in
the sector.
• Communication • Generally personnel to be most
• Etiquette and Protocol critical.
Customer Service • Product Awareness • Content of training varies but
• Customer/Guest Relations generally limited.
• Not practiced as core training in
many programmes.
• SA host training not available in
most communities and not
sufficiently comprehensive.
• Related to target markets • Lack of available facilities.
• English • In many cases foreign language
Languages • French offered as part of a full
• Dutch qualification.
• Japanese • Lack of access in many
• Chinese provinces and localities.
• Need for courses to be
customised to the sector.
• Generally prioritized for urgent
intervention.
HRD Strategy for the Tourism Sector : 31 March 2008 68
Table 19: SKILLS GAP - HARD TO FILL POSITIONS
SECTOR POSITION SKILLS GAP
Hospitality Management • The full range of communication skills across all
Waiters occupational categories
Chefs • Broad-spectrum (full range) of customer/guest
Cooks relations skills – across all occupational categories
Cashiers • Computer skills (usage of various computer
programmes, including specialised hospitality
software for some occupational categories) for
technicians and associate professionals,
professionals, senior officials/managers and clerks
in particular
• Occupationally specific skills for:
• Sales people
• Front of house reception staff
• Cleaners and accommodation service workers
• Financial managers
• HR/IR professionals
• Culinary workers (chefs and cooks)
Travel & Tourism Travel Consultants • GDS/Central reservation training or travel
Managers consultants
Tour Drivers • Developing appropriately skilled tour guides and
Tour Operators tour operators (full range of occupationally specific
Tour Manager skills)
• The full range of critical skills for tour guides and
tour operators, viz.
• Communication
• Computer skills (usage of various computer
programmes as well as industry-specific
programmes)
• Guest relations
• Security skills
Gaming & Lotteries Managers / Supervisors • Occupationally-specific skills for surveillance and
IT Personnel security personnel, including monitoring skills and
equipment operating skills as well as guest relation
skills
• Communication skills and HR-specific skills (such
as implementing the HR needs of an organization
and knowledge of labour legislation) for HR
personnel
• Gaming payout skills for slot operators
• Communication and computer skills (usage of
computer programmes) for senior officials and
managers
• Communication and computer skills (usage of
computer programmes) for senior officials and
managers
HRD Strategy for the Tourism Sector : 31 March 2008 69
SECTOR POSITION SKILLS GAP
Sports, Recreation & Fitness Trainer / Instructor • Communication and public relations skills for clerks,
Fitness Sales Assistant security/maintenance personnel, senior
Barman managers/officials, professionals and technicians
Aerobics Instructor • Computer skills (using various computer
Managers / CEO programmes) for senior officials and managers and
clerks
• Management and leadership skills (occupationally-
specific) for senior managers and officials
• Development of financial managers (all
occupationally-specific skills)
• Sales, customer handling, sport best practice and
office management skills for technicians
Conservation & Tourist Supervisors / Managers / • Computer skills (various computer programmes) for
Guiding CEO technicians, senior officials/managers and
Tour Guides elementary workers
Sales • Financial management skills for technicians
Taxidermist • Communication skills for technicians, clerks, tourist
guides and life sciences Professionals/ rangers
Rangers
• General supervisory and operations management
skills for senior officials and managers
• Guest relation skills for technicians, clerks and
elementary workers
• Office management skills for technicians and clerks
• Understanding the importance of nature
conservation – field rangers
• Supervision and training skills for clerks and senior
officials/managers
• Occupationally specific cleaning skills for
elementary workers
• Front of house skills for clerks
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
6.5 Infrastructure for Delivery
The infrastructure for delivery is constituted of public and private schools and colleges,
special programmes, learnerships in industry training and the availability of qualified
training providers and adequate training facilities. An effort was made to map the
availability of training opportunities geographically, and thereby determine by geographic
zones the capacity of the system to produce skilled individuals in areas of need. The
exercise could not be completed because of the unavailability of data. But the general
indication is that there is a bias toward urban areas in the availability of education and
training opportunities in the sector.
One indication of this is reflected in the distribution of accredited training providers as
reflected in Table 20. The picture is clear. First, there are too few accredited training
providers available; and secondly, there are significant gaps in the availability of providers
geographically, where many provinces and geographic areas do not have accredited
providers within reach. Table 21 provides a unique illustration of the problem by noting the
ratio of training demand vs. training provision. Again the level of disadvantage of some
provinces in some sub-sectors is quite notable. The distribution of training opportunities
geographically is very biased toward urban centres and more urbanized and advanced
provinces. Rural areas, even those with significant tourism assets and products, are at a
HRD Strategy for the Tourism Sector : 31 March 2008 70
significant disadvantage. Some supplemental interventions are provided in the special
programmes of DEAT, TEP and JIPSA. But these interventions are not nearly enough to
make a significant difference.
Table 20: TRAINING PROVIDER STATUS PER PROVINCE AND PER CHAMBER
CONSERVATION GAMBLING HOSPITALITY TRAVEL SPORT TOTAL
PROVINCE
Full Provis Full Provis Full Provis Full Provis Full Provis Full Provis
Eastern
1 - - - 1 - 1 2 1 - 4 2
Cape
Free State
1 - - - 1 - - - - - 2 -
Gauteng
3 - 3 - 17 4 6 4 1 1 30 9
KwaZulu-
- 1 - - 2 2 4 1 - 1 6 5
Natal
Mpumalanga
3 1 - - - - - 1 1 - 4 2
Northern
- - - - - - - - - - - -
Cape
Limpopo
1 1 - - 1 1 - 1 - - 2 3
North West
1 - - - 2 0 2 0 - - 5 1
Western
1 1 - - 3 2 1 - 1 - 6 3
Cape
TOTAL 11 4 3 - 27 9 14 9 4 2 59 25
Source: Table reconstructed from Sector Skills Plan 2008/09
Table 21: TRAINING DEMAND (EMPLOYMENT) VS PROVISION (TRAINING PROVIDERS)
PROVINCE NUMBER OF NUMBER OF NUMBER OF EMPLOYEE EMPLOYER
EMPLOYEES BRANCHES TRAINING RATIO RATIO
PROVIDERS
Eastern Cape 5,720 939 2 1:2860 1:470
Free State 3,617 294 1 1:3617 1:3617
Gauteng 43,832 4,613 21 1:2087 1:220
KwaZulu-Natal 21,447 1,868 10 1:2144 1:187
Mpumalanga 7,685 641 3 1:2561 1:214
Northern Cape 1,324 126 0 0 0
Limpopo 4,333 224 2 1:2166 1:112
North West 7,018 232 3 1:2339 1:77
Western cape 27,613 1,079 6 1:4602 1:180
TOTAL 122,589 10,016 58 1:2553 1:209
Source: Table reconstructed from Sector Skills Plan 2008/09
HRD Strategy for the Tourism Sector : 31 March 2008 71
In the end, there are a variety of issues arise which undermine the effectiveness of the
HRD delivery infrastructure in the tourism sector. Among them are the following:
1. Unavailability and inaccessibility of training opportunities to many because of
the poor geographic spread of training providers.
2. Fragmentation and incoherence in the existing structures for the delivery of
training in the sector.
3. Preponderance of accredited training as many employers do not see the need
for accreditation and many training providers find accreditation too difficult to
attain.
4. Poor articulation between the different levels of the education system.
5. Lack of an effective and efficient body for planning for managing skills
development for the sector as a whole. THETA is not seen as a torch bearer in
this regard, and the sector needs strong skills development coordination in
order to bring more coherence and more uniformity in standards. In this regard
many critical items are not available. There is no comprehensive catalogue of
tourism training with notation of quality; no national registry for certified trainers
in tourism; no national registry of approved tourism training facilities; and,
among others, no mechanism in place for ensuring the articulation of training
between levels of the education system.
6. Tourism training in higher education institutions is assessed as having little
industry relevance, thus producing graduates who are unable to immediately
take up responsibilities in the workplace. Links between education and industry
in this regard are generally poor.
7. Learning materials are said to vary widely in content and quality, and, as a
result, people with the same qualifications may have vastly different levels of
competence. This reduces the confidence of employers in the overall output
from the education and training system.
8. Training in the sector is not demand-led but supply-driven. As a result, there is
significant oversupply of skills in some areas with notable scarcity of skills in
other areas.
9. There is a general lack of competency profiling for occupations, and curricula
materials are not generally based on occupational competency profiles.
10. There are many special projects in the sector in relation to training and skills
development, but in general, these projects are not sufficiently coordinated to
result in a concerted programme of action which will have the overall impact
desired.
6.6 Conclusion
HRD Strategy for the Tourism Sector : 31 March 2008 72
The context of HRD in the sector seems to highlight the need for a strategy which will bring
more coherence and synergy to its skills development efforts. The gaps which exist do not
exist only in terms of skills deficits and the absence of training opportunities to fill these
gaps. There are structural and organizational gaps as well, in addition to areas where
policy interventions may be required. An HRD strategy for the sector must be seen as a
comprehensive and integrated programme of action that will simultaneously respond to the
wide range of issues which undermine the performance of education and training in the
sector. If skills development must add value to tourism growth, then structures and
systems must be re-engineered at all levels.
HRD Strategy for the Tourism Sector : 31 March 2008 73
7. STRATEGIC IMPERATIVES FOR HRD IN TOURISM
7.1 Introduction and Purpose
Strategy is goal-oriented and driven by purpose. The goal of the HRD strategy for the
tourism sector is to ensure that skills development in the sector adds value and contributes
to the strategic business priorities in tourism as reflected in the 1996 White Paper on
Tourism and most recently, in the Tourism Growth Strategy 2008-2010. In this regard, the
strategic orientation for HRD in the sector is to resolve the problems and issues in skills
development which have created an inherent inability in the sector to produce and sustain
the skills and talent it needs to sustain growth. It is hardly possible to solve all the
problems which exist in the short term. Some of the problems are complex and enduring;
and, though they affect the skills development enterprise, they are not issues related to
education and training. Many are organizational issues, and some are distinctly
concerned with management and governance in the public sector.
In presenting the HRD strategy, therefore, the priority first of all, is to identify a minimal and
core set of focus areas in which one can intervene so as to create the change that is
necessary for transforming skills development. These areas of focus are referred to as
strategic imperatives for HRD. These are not solutions in themselves, but areas in which
possible solutions must be explored. It is imperative that interventions be made in all of
these areas if progress must be made. These areas are inter-dependent, no one area can
be left unattended; all must be addressed in a cohesive and integrated manner to create
the difference desired. Below, 19 strategic imperatives are listed and discussed briefly.
The strategy presented in the following chapter is based on these strategic areas of focus.
1. A Service Ethos and Tourism Culture
It is necessary to create in South Africa tourism a public culture and ethos of service. It
is understood that the employees in the sector should be oriented to customer service,
and efforts in this regard are being undertaken and are laudable. But service
orientation is not a subject to be studied in school and practiced when one has an
encounter with a visitor. Service orientation is a way of life. In cultures where tourist
are showered with good customer service, that sense of service does not begin in the
school, but at home and in communities and in one’s daily interaction with people. A
service ethos here refers to the initiatives to be undertaken so as to ensure that the
people in South Africa constitute the core of its tourism success by inculcating a sense
and spirit of service. This sense of service must extend into the tourism industry, and
must be reinforced through training so that the employees in the sector are able to
render services, naturally, to the people they encounter. A memorable tourist
experience comes, not only from the people who serve tourists, but from the attitude of
the people whom they meet in the general public.
HRD Strategy for the Tourism Sector : 31 March 2008 74
2. Strengthening the Educational Foundation or Building Human Capital in the
Sector
A poor educational foundation has “knock on” effects on all the subsequent educational
experiences and efforts of learners. Thus skills development in tourism is constrained
by the poor level of education held by school leavers who enter into the sector. Many
do not have prerequisite skills to participate in and benefit from tourism training
provided by the employer. Efforts must be made to strengthen the basic education of
those in the sector who are not well prepared educationally so that they can be
capacitated to undertake their responsibilities. Ensuring sound basic education in
entrants and employees assists in creating the foundation for a consistent supply of
capable employees for the sector.
3. Promoting Quality and Consistency in Training
The effectiveness of training in the sector is comprised by the vast differences in the
quality and content of training materials. Similar courses in the sector can vary widely
in terms of content covered, depth of coverage, length of training, course entry
requirements and qualifications or certificates conferred upon completion. As a result,
learners who are certified with the same course title from different providers may have
vastly different competencies, and many may not be able to undertake the
responsibilities they are assigned. This undermines the confidence of employers in the
skills development structure for the sector. While on the surface this may appear to be
an easily resolved issue, the problem is more complex than it appears. The problem
results because of the perceived inability of THETA to effectively manage quality in
skills development. There are huge bottlenecks in accreditation; many trainers are not
appropriately qualified, and they are not certified as assessors and moderators; the
SGB for Tourism in SAQA are said to exclude practitioners from industry; there is no
national registry for trainers; no comprehensive assessment of training facilities; and no
national registry of properly certified courses in the field. There is little articulation
between different levels of education, and the field of skills development in the sector is
flooded with unaccredited training organizations and unqualified trainers. The
promotion of quality and consistency in training will be constituted of an integrated set
of strategic interventions to resolve the problems which exist.
4. Facilitating the Availability of Courseware for Tourism
DEAT’s intervention is necessary to facilitate the development of courseware in areas
of training that are highly critical for enabling excellence in the performance of the
tourism sector. One reason for the wide variation in the quality of tourism courses is the
overall scarcity of course designers and course developers in the sector. As a result,
poorly constructed courseware is being developed. Since many training organizations
do not have THETA accreditation, and since most of the existing courseware does not
undergo scrutiny, poor quality results. A set of freely accessible, but high quality
courseware should be available to the public for use. This will ensure that courses that
are critical to the performance of the sector are of the highest quality, and it will ensure
a high degree of consistency in the content taught and the competency of graduating
learners. Again, the quality control to be exercised by THETA is undermined by
bottlenecks which the industry believes are created by excessive bureaucracy, the
inconsistent application of policy provisions and the lack of internal capacity to fast track
the processing of accreditation applications.
HRD Strategy for the Tourism Sector : 31 March 2008 75
5. Commitment, Collaboration and Joint Action to Minimize Fragmentation
One of the most well referenced and discussed characteristics of the tourism sector are
its fragmentation, lack of articulation and ineffective coordination. The fragmented
nature of the sector was not by design and did not arise through any inherent structural
weaknesses. The sector is fragmented as a result of the manner in which it evolved.
The sector emerged as a private sector driven enterprise where establishments sought
to advance their own interest. This pattern of behaviour continued through their
respective associations and still exist today, to some extent, as policy frameworks are
created to foster a more integrated and aligned sector. Fragmentation will not be
eliminated through policy, but through building among all entities a spirit of “joint action
in the interest of the sector”. Stakeholders in the sector must mobilize around a
common set of values, perspectives and principles, and they must confront
fragmentation with their individual commitment and act in cohesion. There must be a
sense in the sector that collaboration and joint action in the general interest will benefit
all as the sector moves to a higher level of performance and competitiveness.
6. Training Interventions Designed to Foster Transformation
The process of transformation in the sector is slow. All the transformational initiatives
which have been undertaken have not borne fruit as anticipated in changing the
structural inequities in the sector. Training for transformation is not training as usual. It
is not limited to the routine programming and availability of courses to build the capacity
of those who are given access to ownership and more lucrative positions in the sector.
Transformation targeted training should be more integrated. In addition to technical
courses, programmes should combine awareness training with other training and
support interventions such as assertiveness training, self confidence and personal
motivation. While technical courses in all aspects of business management are
necessary, success sometimes does not depend on technical “know how”, but on self
efficacy, networking, building partnerships and detecting niches and business
opportunities. A new entrepreneurial cadre will not be built with the dispensation of
technical “know how” without building self efficacy and business intelligence. Training
and programming for transformation must be properly crafted and executed to make a
difference. In addition to this, we should not assume that all the owners of
establishments are aware of how to promote transformation within their organizations.
While many in the industry know how this is done and are taking initiatives in this
regard, and while some know how to but are unwilling to do so, some are not fully
aware of what must be done and are not sure of the effect on their organizations. In all
these cases, training interventions can assist. Those who try should be supported,
those who are reluctant should be encouraged and those who do not know should be
trained to do so.
7. Private Sector Partnerships and Participation in Policy
The critical expertise in tourism is resident in the private sector. While this may be a
consequence of history, it is a fact which cannot be understated or overlooked. The
future viability of the sector will depend on the extent to which the hidden and untapped
expertise in the private sector could be mobilized, as necessary, to contribute to and
strengthen initiatives in training. Such initiatives will include the development of
standards, the development of curriculum materials and courseware, assistance in
HRD Strategy for the Tourism Sector : 31 March 2008 76
coaching and mentoring, facilitating experiential learning, exchange programmes, policy
development and programming for the sector, the development of appropriate systems
and structures for training delivery, outsourcing some aspects of training and quality
management, and, among others, involvement in training facility design and
management. A significant amount of capacity in the private sector is left untapped.
The tourism sector will accelerate its growth and performance if it is efficient in tapping
into its own strengths and inherent capabilities.
8. Consolidating and Streamlining Disparate Initiatives into more Coherent and
Articulated Structures
The tourism sector is replete with special initiatives and innovative programmes to build
the sector and enhance its performance. These initiatives reside in different
departments, boards and associations; and they are sometimes duplicated, in conflict or
isolated to the extent that they are ineffective and without impact. While these
initiatives all arise and are undertaken with good intent, they, most of all, sometimes
serve to fragment and build confusion in the sector. Some of these initiatives are short
term and only benefit a few; some of them are long term, but not adequately
incorporated into the mainstream of activities in the sector. Some are terminated or
finalized without any follow up support, and as a result, all the benefits initially derived
are made to slowly wither away. Some natural initiatives are not properly coordinated
provincially or locally because prior arrangements have not been made, or because
inter-institutional linkages are weak. Disparate and isolated initiatives weaken the
infrastructure for delivery, disrupt the smooth flow of the sector’s business and result in
the wastage of valuable resources. This should be overcome with interventions to
consolidate and align projects and efforts to build structures which integrate rather than
separate.
9. HRD Targeting to Strategic Priorities
The tourism sector is complex and dynamic with a variety of labour markets, each with
widely varying characteristics. A strategy of predicting demand and training needs of
the whole tourism sector is not helpful. At best, such predictions are general and weak
estimates of what skills are really needed. It is true that there are scarce and critical
skills in the sector, and, to some extent if individuals are trained they will obtain
employment. But there are geographic differences in relation to these needs. The
Panoramic Route may not need chefs, but the Garden Route may. It may be necessary
to begin HRD targeting to strategic priorities. Here, we will begin to interrogate the
training implications of the strategic decisions we take in the sector. The training
implications of building the tourism infrastructure of East London and the Wild Coast
may well be different to training needed to build tourism in central Limpopo. HRD
targeting seeks to be a bit more precise about training needs. This precision is
necessary. With targeting training could be provided for the specific purpose. Training
for SMMEs, for instance, may require a degree of multi-skilling because of the generally
small staff and low margins for employing specialists. Training to capacitate local
government may vary slightly according to the tourism products and infrastructure
within the local jurisdiction. It also depends on the training capacity of the geographic
area. If the country needs more trained consultants and reservations agents and
training is rendered, these will be produced in Cape Town and Johannesburg because
the training facilities are in these areas. Yet, the need for these skills may be in East
HRD Strategy for the Tourism Sector : 31 March 2008 77
London or Port Elizabeth. There are structural variations in the need for skills and
these must be taken into account.
10. The Public as Human Resource Asset in Tourism
This extends the notion of service ethos and tourism culture to the general public. In
tourism, efforts should be made to create a welcoming and service-oriented public.
This will ensure that the experiences of tourists are memorable and lasting. The most
valued asset of the tourism industry is its people. The industry can extend its asset
value through the wide availability of service and tourism-oriented courses for public
consumption. The vehicle for training can vary, and the method of interventions will
have to be creative and unique. But some form of public education is essential. There
are many citizens who are not aware of the tourism products and assets in their
geographic area. As a result, these are not explored or utilized when they have visitors
or when asked for advice on leisure-related activities. Apart from the welcoming spirit
and the orientation to service, there must be more awareness among the general public
regarding what South Africa offers, region by region, in terms of tourism products.
11. Streamlining Organizational Structures for Delivery
Much of the complexity of the tourism industry results from the complexity and
fragmentation in its governance. There are a variety of national departments that are
involved in some aspect of tourism. Each has provincial counterparts, and some have
agencies or units at the local level. Each department has strategies, initiatives and
programmes, and each has a distinct regulatory framework for which it operates.
Provinces and municipalities develop their own initiatives, programmes and strategies,
sometimes without reference to national strategic priorities. As a result, varying
components of the tourism enterprise are managed through DEAT, Department of
Labour, Department of Education, DTI, Department of Foreign Affairs, Department of
Home Affairs and the Department of Local Government, among others. There must be
structures for ongoing collaboration which work to prevent duplication and to overcome
the prospect of overburdening an already complicated and unarticulated sector. One
aspect of this streamlining is the policy linkages and articulation between the different
spheres of government from national, to provincial, municipal and local communities. In
tourism, for instance, provincial counterparts are housed in different departments and
are constituted of very small units embedded within their departmental homes. The
flavour and priorities in tourism in the respective province is likely to be tainted by the
existing priorities of their departmental home. It may be Agriculture; it may be Housing;
or it may be Arts and Culture or Environmental Affairs. Sometimes there are no
linkages to local communities except through authorities, associations and boards.
There is no established protocol or structures for smooth inter-provincial relations which
reaches communities and no mandate in place for strategic alignment. This is
especially so on matters related to training in tourism. Any national priorities for skills
development are not certain to be adopted or undertaken in local jurisdictions. There
must be structures in place to streamline and align strategy interventions so that they
can have impact to the sector as a whole.
12. Information-Based Management
Even more than the shortage of skills in the sector, the performance of the sector is
constrained by the lack of information for the strategic management of the sector’s
HRD Strategy for the Tourism Sector : 31 March 2008 78
growth and development. While a lot of information is available, and while, in some
cases, the performance of the sector is effectively monitored through the ongoing
compilation of statistics, in many cases the information available is not structured in a
manner to maximize its use in decision making. Projections may be technically flawed
and may be inaccurate; time serves data may have gaps; the data sampling frames
may limit generalizations; and, among others, sweeping and invalid assumptions may
be made in estimating critical statistics. Much effort has been made to correct this, and
the data available from WTO and other bodies are quite helpful. But the scope of data
available is not sufficient for the range of decisions to be made. This affects skills
development since there is a training response to business priorities which have been
derived from this data. The quality of information related to skills development is very
inadequate. THETA statistics, for instance, are largely based on the levy pay firms in
the THETA database, and, in particular, those which submit WSPs. But only a small
fraction of those enterprises submit WSPs. As observed earlier in this document,
statistical estimates vary according to the source from which it is derived. The growth
and development of the sector cannot be effectively managed without a reliable body of
data that is collected consistently over time. But data is not information. The data must
be processed and interrogated for decision making. There must be ongoing research
capacity and technical support to ensure that decision makers are well informed to
make policy decisions.
13. Building Competence in Tourism Management and Leadership in all Spheres of
Government
“Tourism is government-led…”. This is critical. Leadership must be provided in the
tourism sector to sustain its growth, viability and its competitiveness. There are
complaints from the industry about the quality of leadership provided in some sectors
and spheres of government. Good and effective governance is critical. Government
agencies have a bird’s eye view of the sector, they develop and manage the legal and
regulatory frameworks, they develop and implement the strategies and they monitor
and report on performance. By virtue of their role, they are in the best position to
exercise leadership and, in partnership with the private sector, guide the sector into
competitive success. But in many areas this manner of leadership is not exercised.
THETA, for instance, is an example. Some in the industry believe that THETA is a
hindrance rather than a facilitator of skills development in the sector. Some believe that
their bureaucratic blockage stifles growth, undermines quality and limits performance.
At the local level, those who manage tourism (generally LED officials) do not
understand the field, and those who understand sometimes do not have access to the
authorities. Training in leadership and management in the sector is essential. The
scope, content and structure of this type of training are negotiable. But it may vary by
the sphere of government targeted; the nature of the leadership role undertaken; and
the performance expectations of the governmental authority. Without capacity in
government the sector will be run, by proxy, outside the realm of government authority.
It should be noted, however, that while benefit may accrue to selected stakeholders
from the neglect of government, overall, such neglect is destructive to the sector as a
whole. The sector will never rise to its potential for excellence without government
leadership and coordination. The most critical imperative of the HRD strategy is that of
giving government the capacity to lead and communities the capacity to manage the
assets that are placed in their charge.
HRD Strategy for the Tourism Sector : 31 March 2008 79
14. Incentive-Driven Promotion of HRD for the Sector
Much of the intervention in HRD in the sector is corrective. Corrective in the sense of
breaking trends, traditions and well entrenched practices in the field. This manner of
intervention is inherently difficult. In many cases, stakeholders will not willingly reverse
those practices which are detrimental to the growth and viability of the sector. For
instance, training providers may continue to maximize the number of participants per
class and sustain the over-supply of graduates; employers may continue the trend of
casualization instead of career-pathing in order to maximize profits and limit industrial
relations challenges; accreditation success may still be biased towards organizations in
urban centres; enterprises may still choose to release instead of employ learners when
they have completed their learnerships; the many associations in the sector may still
choose to advocate in their own interest even when their positions may be detrimental
to the sector as a whole. In order to manage success with a “win-win” disposition, what
will it take to reverse trends that are detrimental to HRD in the sector? There must be
incentives which motivate and encourage stakeholders to embark on the journey of
renewal, sometimes to their own detriment. Incentive-driven promotion of corrective
HRD interventions is essential.
15. Integration of Plans, Strategies and Programmes
As noted in item 11 above, the complexity of the sector resides largely in the complexity
of its governance. One aspect of this complexity is the wide variety of plans, strategies
and programmes which sometimes operate independently of each other. The result is
fragmentation and implementation uncertainties. Plans, strategies and programmes
must be integrated in two ways. First of all, there must be horizontal integration where
sister departments in government at all spheres construct their plans with reference to
each other. The same is necessary for strategies and programmes. Two different
departments may identify the same gap in the tourism sector and both may initiate
similar programmes to serve the same audience; and, each will operate without
reference to the other. In one instance, two national departments provided the same
local organization with funding for the identical project. IDPs, for instance, should not
be independent to LED strategies and to the strategic provisions of provincial growth
and development strategies. When these matters are handled by different agencies,
gaps in coordination are likely.
Vertical integration is also essential in order to preserve and sustain selected strategic
thrusts from the national sphere of government to that of municipalities and
communities. Here again, problems arise because of structural gaps in the realm of
inter-governmental organizational arrangements. Structures must be put in place to
create more synergy. This is pertinent to the sector as a whole, but it is particularly
relevant to HRD within the sector.
16. Articulated Policy Frameworks for Delivery
The point being made here is similar to the cases made in item 11 and 15 above. The
problem is similar. Policy and regulatory frameworks are set nationally without
reference, sometimes to the organizational arrangements that are needed for
implementation through to localities. In this regard, responsibilities and expectations
are sometimes not properly disaggregated to the provincial and local levels.
Sometimes there is a structure and staff to manage the matter nationally, but no one to
HRD Strategy for the Tourism Sector : 31 March 2008 80
whom the matter could be assigned for follow through in other spheres of government.
Sometimes policy adoptions and expectations may be required in order to effectively
implement in another sphere of government. The need for policy articulation is
essential to the HRD strategy. Both DEAT and THETA must have counterparts in each
province so that essential mandates and strategic provisions could be administered
provincially and locally. The tourism act makes provision for this in allotting tourism as
both a national and provincial competence. There must be efforts made to enable
national and provincial structures to work in unison.
17. Building Core and Generic Competencies as a Stimulus for Change
One stakeholder enquired “where do we start?” Because of the urgency of skills
development interventions to grow the sector, many different activities are occurring, all
at the same time, throughout the sector. Each intervention is important in its own right,
but together, they are worth much less if a more coherent strategy is not undertaken. It
seems that the place to begin to rebuild HRD in the sector is to strengthen the delivery
of core and generic competencies. This seems to constitute the foundation upon which
the capacity in the sector can be strengthened. If core and generic competencies are
delivered effectively, a momentum can be built to transform HRD in the sector.
18. Demand-Led Planning in Skills Development
While there are scarce and critical skills in the sector, there is even more of an over
supply of some of the basic skills needed in tourism. Some argue that because of the
dynamic nature of the sector it is necessary to have an over-supply so that it becomes
easier to fill vacant jobs when they arise. But this position may be less acceptable to
the unemployed graduate. The sector must take account of the manner in which its
training resources are allocated and used. Significant over-supply should not exist in
the presence of severe and critical shortages of labour. There is need therefore for a
more concerted effort at demand-led planning and delivery of training. This requires a
significant investment in research and information so that there is more data available
for programming skills development.
19. Building Capacity in Communities to Assess, Value and Manage Tourism Assets
Local communities are, perhaps, the most disadvantaged stakeholders in the tourism
sector; this, in spite of the fact that tourism is “… community-based”. In general
communities are said to be essentially without capacity. Most depend on consultants
who sometimes advance their own interest in providing strategic advice and rendering
technical assistance. If the point at which the actual tourism services are rendered is
without capacity, then there is little hope of true competitiveness globally. There is a
natural limit to which the strategic interventions at higher levels of government can add
value and bear fruit in building the tourism sector. Beyond some point, efforts are being
wasted if communities are not capacitated to follow through and develop and manage
tourism assets within their jurisdiction.
HRD Strategy for the Tourism Sector : 31 March 2008 81
8. A CONCEPTUAL FRAMEWORK FOR HRD IN THE TOURISM
SECTOR
8.1 Introduction and Purpose
The tourism sector is complex, multi-faceted and dynamic. This complexity adds
significantly to the challenge of deriving a comprehensive solution for the skills
development dilemma the sector faces. But such a comprehensive solution will be a major
leap forward – from preparation, inconsistent standards and unevenness in supply, to a
well articulated system of education and training which can support and sustain the
competitive performance of the sector into the future. The challenge is to put the correct
components of action into a development programme that makes sense.
In light of the imperatives explained in the previous chapter, the purpose of this chapter is
to present the critical components of an action programme that could build a more viable
infrastructure for skills development in tourism. The chapter will present the conceptual
framework or the key features of this action programme. Its purpose is to sketch an
overall approach to HRD which could overcome the problems currently being confronted
and simultaneously lay a sound foundation for HRD in the sector. The framework
represents a structure and selected items of action which are likely to have the highest
impact on the sector in the shortest time period. While comprehensive in its approach, the
structure does not address all possibilities of action necessary, nor does it attempt to
resolve all the problems which currently exist. It seeks only to identify a programme of
action which could add the highest value in strengthening human capital formation in the
sector.
8.2 Key Components of the Conceptual Framework
The conceptual framework is presented in Figure 4. The conceptual framework is lodged
within the legislative and strategic framework of government in the tourism sector, and it is
framed upon the rich and diverse organizational arrangements which currently typify the
sector. In this sense, the conceptual framework is not decontextualized. It is intended to
bring coherence to the sector, both organizationally and in respect to policy and legislative
mandates. This coherence is realized through three areas of action as follows:
i. The articulation of a vision for HRD which could unify perspectives and aspirations
for human capital formation in the sector.
ii. The identification of a comprehensive programme of interventions which can
address the issues that affect all stakeholders in the sector, all which can build a
sound foundation for HRD in the sector.
iii. The derivation of a set of core principles to which all in the sector can subscribe in
promoting unity and in fostering coherence in action.
HRD Strategy for the Tourism Sector : 31 March 2008 82
Figure 4: CONCEPTUAL FRAMEWORK FOR HRD STRATEGIC INTERVENTIONS IN THE TOURISM SECTOR
A
Vision for HRD in
the Tourism Sector
Sustained and efficient human capital formation
to grow a service-oriented and world class tourism enterprise
Human Capital Formation and Utilization for a World Class Tourism Enterprise
Structural Arrangements in Develop & Implement a Strategic Mobilization of
Management and DEAT to enable Integrative Framework for Monitoring, Geographically
Leadership Development Planning in Support of Evaluation & Impact Representative Group of
Tourism (environment, Assessment of HRD in the Employees in the Sector to
conservation, biodiversity, Sector Maximize Access to
etc) Economic Development
Adoption of a Priority Programmes
Skills Development Comprehensive Stakeholder (ASGISA, EPWP)
Packaging for SMMEs Adoption of an Integrated & Engagement Programme to
Coordinated Programme for Consolidate HRD Efforts in
Accelerating Transformation the Sector Promoting Integrated &
Promoting Access to in the Sector Inter-Sectoral Approaches in
Education and Training in Responding to Tourism
the Sector Streamlining the Training Initiatives Targeted
Administration of the Sector to Economic Development
Assessing the HRD
Strengthening Workplace Implications of Strategic
Learning through Effective Priorities in the Sector Promote Capacity
Training Management Developing & Streamlining Development for the
Policy and Policy Integration of Tourism
Framework for the Priorities in the Strategic
Management of HRD Plans and Priorities of
Building Core and Generic Streamlining the Government (PGDP, IDPs,
Competencies for the Sector Management of HRD in etc)
DEAT
Tourism Education Embark upon Awareness
Database & Information Promotion of Government’s
Growing a Tourism Culture System for the Demand-led Economic Growth &
through Training Management of Skills Development Initiatives
Enhanced Human Resource Development (as part of
Planning for the Tourism clearing house)
Sector
Building Tourism
Competency in Local Alignment and Streamlining Adoption of a Targeting
Government of Tourism HRD Strategies Strategy in Training for GCP
to Consolidate Efforts with in JIPSA and ASGISA in the
Improved HRM practices in the Private Sector & Across Tourism Sector
support of HRD Spheres of Government
Strengthening the Role of
Industry in Training
Expansion of Programme
Knowledge and Information Alignment of Tourism Plans Initiatives to Link Skill
Promoting Effectiveness in Management for the & Strategies within a Development to Economic
the Delivery & Management Tourism Sector National and Inter-Provincial Development (JIPSA,
of Training in the Sector Framework of Action ASGISA)
CAPACITY ORGANIZATIONAL GOVERNANCE ECONOMIC GROWTH &
DEVELOPMENT Initiatives SUPPORT Initiatives to DEVELOPMENT
to strengthen capacity Initiatives to ensure that strengthen governance of HRD initiatives to support
development structures, organizations are ready to HRD in the & sustain economic
systems and services in adequately sustain & use Sector growth & development &
the Sector their human resources related interventions
4 Key pillars for enhancing human capital formation & utilization in order to attain & sustain a world class tourism enterprise
Enriching Delivery in
Consolidating efforts
through Stakeholder
Articulation between
to maximize impact
Promoting Strength
Grow and Succeed
Shared Information
Opportunities to All
Common Brand in
Transformation in
HRD for Tourism
Subscribing to a
Opportunities to
Articulation and
Accessibility of
Coordination &
Public Private
as a basis for
Communities
Programmes
Partnerships
Uniformity in
Continuity in
Governance
Education &
Intelligence
Relevance
the Sector
Promoting
Standards
Alignment
Collective
Levels of
Equity in
Strategy
Training
Industry
Unity
Core principles for informing, guiding and strengthening HRD strategic interventions
National structure of Tourism Boards, Associations, Enterprises & Training Institutions
HRD Strategy for the Tourism Sector : 31 March 2008 83
National legislative and Strategic Frameworks of Government
HRD Strategy for the Tourism Sector : 31 March 2008 84
Each of these is addressed separately in the sub-sections to follow.
8.2.1 A Vision for HRD in the Tourism Sector
The vision for South African tourism has been articulated as “that of a dynamic, innovative,
sustainable and highly regarded sector offering overseas and domestic tourists a positive
and memorable experience beyond their expectations”. A vision for HRD in the sector must
be in support of this overall vision. There are three main features of a possible vision for
HRD in the sector: the sustainability of human capital formation; the dependence of the
sector on people for its success; and the importance of partnerships in building skills in the
tourism sector. A vision for HRD is proposed as “partnerships for sustained and efficient
human capital formation to grow a service-oriented and world class tourism enterprise”.
This vision highlights the fact that, in light of the history of skills development in the sector,
successful human capital formation in the industry will not occur without viable and multi-
dimensional partnerships with the private sector. This should not focus only on short term
solutions, but on long term viability in terms of sustained sources of a reliable supply of
talent. The notion here is the sentiment and expectations that such a vision creates and
inculcates in stakeholders over time. This vision must commit to the following:
i. Long term and sustainable solutions rather than “quick fixes”.
ii. Building human capital for the viability of the sector as a whole rather than for
self or for particular sub-sectors.
iii. Joining forces, complementing resources and combining inherent advantages in
producing skills rather than in pursuit of individual interests.
iv. Investment in people as the single most viable source of the sector’s success.
v. The commitment to build a world class sector together.
vi. The production of talented people in the most efficient way possible.
vii. The mainstream of the highest standards in human capital formation.
To the extent that all stakeholders can subscribe to the same vision, the fundamentals will
be in place to establish coherence in skills development in the sector.
8.2.2 A Comprehensive Programme of Interventions
The comprehensive programme of interventions refers to the particular actions which will
be taken to restore the infrastructure for building human capital. There are four categories
of interventions that are required. These are itemized and briefly discussed below:
i. Capacity Development Interventions: Capacity development interventions are those
which result in the development of skills in people to undertake varied responsibilities in
the sector. Capacity development refers to either these efforts which result directly in
the production of skilled people, or those interventions which build quality in the system
and processes through which these skills are produced. Management training for
example, is an example of the former, and materials development is an example of the
latter. These, together, can build a sound infrastructure for HRD. Under capacity
development, there are 9 selected areas of focus; each area representing a core
objective or a major area of focus. Figure 5. presents the strategic intent for each
strategic area of focus, and Table 22 presents the rationale and intended outcomes for
each area. Table 23. presents the sub-objectives associated with each of the 9 areas of
strategic focus.
HRD Strategy for the Tourism Sector : 31 March 2008 85
Figure 5: STRATEGIC FOCUS ON CAPACITY DEVELOPMENT INITIATIVES
STRATEGIC FOCUS AREAS STRATEGIC INTENT
1.1 To build capacity to manage planning and
Management & Leadership policy in the sector; to bring transformation in
the management of the sector; and to prepare
Development
managers to respond to changing
requirements in the sector.
1.2
Skills Development Packaging To prepare a comprehensive programme of
training which is responsive to the needs and
for SMMEs
circumstances of the SMMEs.
1.3 To ensure that all in the sector have access to
Promoting Areas to Education high quality training.
& Training in the Sector
CAPACITY
DEVELOPMENT
1.4 To create opportunities for more practice-
Strengthening Workplace based training and more effective workplace
learning.
Learning through Effective
Training Management
1.5 To enhance the quality and availability of
training in areas that are fundamental to the
Building Core & Generic
successful performance of the sector.
Competencies for the Sector
1.6
Growing a Tourism Culture To foster a strong sense of service excellence
in South African Tourism
through Training
1.7
Building Tourism Competency in .
Local Government To build capacity of local government to
manage their tourism resources
1.8
Strengthening the Role of
To promote consistency and industry
Industry in Training
relevance in training.
1.9
Promoting Effectiveness in the To ensure standards, consistency and
Delivery & Management of articulation in training
Training in the Sector
HRD Strategy for the Tourism Sector : 31 March 2008 86
Table 22: RATIONALE & INTENDED OUTCOMES FOR CAPACITY DEVELOPMENT
PILLAR ONE
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
CAPACITY DEVELOPMENT
1.1 Capacity to manage is a critical • More consistent and
Management and Leadership consideration for the sector. On standardised leadership in the
Development the one hand there is need for sector
more effective policy leadership • More blacks in the management
and management in the sector. On of enterprises in the sector
the other hand there is an urgent • Greater capacity to respond to
need to transform the management the changing demands of the
of enterprises. Without focused sector
skills development in management,
the performance of the sector will
not be enhanced.
1.2 More than 80% of the sector is • Higher capacity of service
Skills Development constituted of SMMEs. The needs excellence in SMMEs
Packaging for SMMEs of SMMEs are different; and their • More participation of SMMEs in
circumstances do not always allow training
benefit from the traditional modes • Greater accessibility of training
of training. There is need to to SMMEs
consider what training will most
benefit SMMEs in terms of content,
mode and training and
accessibility. SMMEs do not
generally invest in training.
1.3 Access to high quality of education • Equality in opportunity to
Promoting Access to and training in the sector is participate in training
Education and Training in the inequitable, either through • Career ladders to management
geography, or because of race or for the talented at entrance level
Sector other prejudices. Efforts must be • More accredited providers in all
made to improve access so that sub-sectors that are widely
opportunities can be available to dispersed geographically.
all.
1.4 In many cases the content of • More industry relevant training
Strengthening Workplace training programmes is not • More effective methods of
Learning through Effective sufficiently relevant to industry. As practical learning
a result, people who are trained
Training Management cannot perform well at their jobs.
In some cases, the infrastructure
for workplace learning is not
adequate.
1.5 One of the issues in the sector is • Sound foundation for continued
Building Core and Generic the level of preparation of entrants learning in the sector
Competencies for the Sector to be properly prepared for jobs, or • More effective supervision in the
to perform effectively. As a result, sector
the skills development in the sector
suffers from the lack of basic skills
in the people who enter. There is
also a significant lack of
supervision skills.
HRD Strategy for the Tourism Sector : 31 March 2008 87
PILLAR ONE
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
CAPACITY DEVELOPMENT
1.6 One of the complaints in the sector • Steering service excellence
Growing a Tourism Culture is the absence of service • More public knowledge about
through Training excellence. Even beyond this, tourism
there is lack of a culture in tourism • Higher participation of the
in terms of public knowledge, community in the success of
attitude, interests and tourism
understanding of responsibilities for
promoting excellence in the sector.
1.7 Local government are at the coal • Tourism assets more effectively
Building Tourism face in terms of developing and developed and managed
Competency in Local managing tourism assets. • More competence in tourism
Generally, they do not have the among local government
Government
capacity to do so, and most depend officials
on external technical assistance.
Even with external assistance they
must be able to manage their
assets.
1.8 Issues have been raised about the • High practical relevance in
Strengthening the Role of industry relevance of training. training
Industry in Training There is not enough collaboration • Trained individuals who are
between the public sector and sufficiently competent to take up
private industry to maintain a high jobs in the industry
level of practical competence
among employees.
1.9 Effectiveness in the development of • Greater consistency in the
Promoting Effectiveness in training is related to the quality of quality of training
the Delivery and Management training in terms of materials; • Wider availability of high quality
methods used; the level of trainers; materials
of Training in the Sector the nature of facilities; and the • Greater articulation in courses
planning and policy frameworks, between levels
among others. Quality is
inconsistent and standards are not
adhered to.
HRD Strategy for the Tourism Sector : 31 March 2008 88
Table 23: CONCEPTUAL FRAMEWORK - OBJECTIVES & SUB-OBJECTIVES FOR HRD IN THE
TOURISM SECTOR: CAPACITY DEVELOPMENT
PILLAR ONE
CRITICAL
COMPONENTS CORE OBJECTIVES AND SUB-OBJECTIVES
OF THE HRD CONCEPTUAL FRAMEWORK
STRATEGY REFERENCE
• Adopt a management development programme in
effectively trained and are ready with the necessary practical skills to take up employment in
1.1 policy leadership and strategic management in the
sector that is specially targeted to senior officials in
Capacity development refers to the efforts that are undertaken to ensure that people are
Management & the public sector to include coaching and mentoring
Leadership • Provide incentives and a comprehensive
Development programme for accelerated progression of talented
the sector and contribute to the sector’s competitiveness and performance.
blacks into management positions
• Develop and implement a sector-specific training
programme for managers in outsourcing to include
procurement, project management and contracting
• Establish skills development programming that is
PILLAR ONE – CAPACITY DEVELOPMENT
1.2 specially targeted to SMMEs
• Provide incentives for training providers who serve
Skills Development SMMEs
Packaging for • Adopt a programme for multi-skilling people
SMMEs particularly for small enterprises
• Provide incentives for training partnerships which
monitor, coach or develop operational skills for staff
in SMMEs
• Rationalizing the training environment and supply
1.3 stream for human resources in tourism
• Institute a programme of e-learning or e-training to
Promoting Access to be accessed by public and private enterprises
Education and • Establishment of a coordinated training network
Training in the Sector nationally with selected core providers to ensure
representativity of training opportunities in all
sectors
• Identification of geographic areas with gaps in
training delivery and institute a development
programme
• Adoption of RPL in enterprises in order to enable
greater access and enhance promotability
• Institute and strengthen policy measures and
support structures to ensure that access is not
denied through affordability
• Implement incentives and a programme for
1.4 enterprises to include investment in people
• Provide incentives to create opportunities for
Strengthening experiential learning for trainees
Workplace Learning • Establish policy guidelines and protocols for career
through Effective pathing in enterprises to begin with induction
Training • Establish protocols and policy guidelines for scarce
skills retention management
Management
HRD Strategy for the Tourism Sector : 31 March 2008 89
PILLAR ONE
CRITICAL
COMPONENTS CORE OBJECTIVES AND SUB-OBJECTIVES
OF THE HRD CONCEPTUAL FRAMEWORK
STRATEGY REFERENCE
• Strengthen ABET provision in the tourism sector
1.5 • Establishment of a common format and structure for
induction in various aspects of tourism
Building Core and • Implement a national training programme on core
Generic competencies for the tourism sector to be adopted
Competencies for the by training entities and tourism enterprises –
Sector communication, maths literacy, service excellence –
and used as bridging courses for tourism training
• Structure a basic supervision course targeted at
supervisors in the sector
• Ensure the availability of relevant and basic IT
courses for workers in the sector
• Public training and tourism drive on “Tourism and
1.6 You”
necessary practical skills to take up employment in the sector and
• Developing and marketing a structured and multi-
Capacity development refers to the efforts that are undertaken to
ensure that people are effectively trained and are ready with the
Growing a Tourism level training programme in tourism awareness to
contribute to the sector’s competitiveness and performance.
Culture through promote local and national tourism knowledge
Training • Promote experiential learning in all schools to
PILLAR ONE – CAPACITY DEVELOPMENT
introduce learners to the tourism sector
• Implement a training programme on the roles and
responsibilities of stakeholders in tourism
• Develop and promote a national service excellence
training programme
• Develop and promote a national training programme
on community participation for tourism enterprises
• Expand the reach of tourism ambassador
programme
• Ensure training priorities are in line with destination,
positioning and branding
• Expanding reach of local government toolkit
1.7 • Developing guidelines for HRD strategy
development and implementation for local
Building Tourism government
Competency in Local • Developing a tourism management training
Government programme for relevant local government and
community officials
• Promote incentives for industry to offer internships,
1.8 learnerships and various forms of experiential
learning
Strengthening the • Incentives for industry involvement in curriculum
Role of Industry in development
Training • Outsourcing some publicly funded training to private
and business entities
• Enhancing industry participation in policy and
strategic bodies
HRD Strategy for the Tourism Sector : 31 March 2008 90
PILLAR ONE
CRITICAL
COMPONENTS CORE OBJECTIVES AND SUB-OBJECTIVES
OF THE HRD CONCEPTUAL FRAMEWORK
STRATEGY REFERENCE
• Promoting and enforcing standards and
1.9 competitiveness for trainees in tourism
• Fostering the availability of high quality training
Promoting materials that are easily accessible
Effectiveness in the • Development of skills profiles for all occupations in
Delivery and the sector
Management of • Articulation of courses in the sector by levels from
basic and generic core competencies to specialized
Training in the Sector and managerial skills
• Developing and enforcing standards for training
facilities and programmes
• Developing and enforcing standards for learning
materials
• Policy intervention to bridge differences in course
quality, standards and contact
ii. Organizational Support Interventions: The first pillar, capacity development
interventions, cannot stand alone. In this respect, organizational support interventions
refer to those activities that are undertaken in order to ensure that organizations are
ready to support, sustain and effectively utilize their human resources. Skills and
capacity development is therefore only one of the many considerations for enhancing
human performance and enterprise effectiveness in the sector.
It is likely that improved skills development in the sector will contribute little to the
performance of the sector unless these skills can be properly utilized in a manner that
could add value to the performance of enterprises and the relevant services delivered.
What then complements skills and capacity development in order to make the sector
globally competitive? In this regard, seven critical areas of focus are recommended.
These focus areas point to the major organizational weaknesses which have in the past
plagued the performance of the sector. Among these weaknesses are: the overall lack
of good HR information for planning; HRM practices which undermine the performance
of staff; the lack of communication in the leadership of HRD initiatives in DEAT; and the
general inability in assessing the HR implementation of major strategic priorities in the
sector. The focus areas selected seek to remedy these weaknesses. The strategic
intent of each of these focus areas is highlighted in Figure 6, and the rationale and
intended outcomes of each area is presented in Table 24. Table 25 presents a list of
the sub-objectives associated with each focus area or core objective.
HRD Strategy for the Tourism Sector : 31 March 2008 91
Figure 6: STRATEGIC FOCUS ON ORGANIZATIONAL SUPPORT INITIATIVES
STRATEGIC FOCUS AREAS STRATEGIC INTENT
2.1
Structural To ensure that there is a cohesive and
Arrangements in DEAT to enable integrative approach to planning which
Integrative Planning in support of takes advantage of the value of all aspects
Tourism (environment, of DEAT’s mandate to the tourism sector
conservation, biodiversity etc)
2.2
Adoption of an Integrated and To ensure that all transformational
Coordinated Programme for initiatives and programmes for the sector
Accelerating Transformation in the are properly integrated in order to
Sector complement and support each other.
ORGANIZATIONAL
SUPPORT 2.3
Assessing the HRD Implications To ensure proper assessment and
of Strategic Priorities in the targeting of HRD resources in relation to
Sector strategic priorities
HRD Strategy for the Tourism Sector : 31 March 2008 92
2.4
Streamlining the Management of To bring consistency and focus to HRD in
HRD in DEAT the sector, and to ensure effective and
efficient programmatic coordination
2.5
Enhanced human resource .
planning for the Tourism Sector – To ensure that the HR needs of the sector
Supply & Demand Assessment & are effectively determined in order to
Management enable a more demand-driven human
resource development and management
2.6 To ensure that HRM practices in the sector
Improved HRM Practices in Support support the most effective and efficient
of HRD utilization of labour and minimizes the
constant withdrawal of labour from the
labour pool
To ensure that valid and reliable
2.7 information is available to support
Knowledge and Information information-based decision making and
Management for the Tourism Sector thereby promote greater efficiency and
strategic focus in the management of the
sector
Table 24: RATIONALE AND INTENDED OUTCOMES FOR ORGANIZATIONAL SUPPORT INITIATIVES
PILLAR TWO
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
ORGANIZATIONAL
SUPPORT INITIATIVES
2.1 Tourism planning in DEAT does not accrue • The tourism sector is
Structural Arrangements in full benefit from the various aspects of strengthened through the more
DEAT to enable Integrative DEAT’s mandate which relates to tourism. strategic integration of
As a result the tourism sector is not able to environmental concerns on the
Planning in support of properly integrate aspects of environment, tourism agenda
Tourism (environment, conservation and biodiversity in building a • Integration of environment,
conservation, biodiversity world class tourism enterprise. conservation and biodiversity
etc) into tourism planning and
management
2.2 There is a rarity of worthwhile transformation • More visible gains in the
Adoption of an Integrated initiatives which are intended to benefit the realization of the
and Coordinated Programme sector. These initiatives are not properly transformation agenda for the
coordinated and streamlined, and, as a result sector
for Accelerating the full impact of transformation efforts are • Greater programme
Transformation in the Sector not fully realised. These initiatives must coordination and delivery
complement each other in order to realise efficiency
their full effect.
HRD Strategy for the Tourism Sector : 31 March 2008 93
PILLAR TWO
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
ORGANIZATIONAL
SUPPORT INITIATIVES
2.3 Planning is undertaken for the sector without • More targeted approach to HR
Assessing the HRD full assessment or realization of the planning in respect to strategic
Implications of Strategic associated human resources required to priorities
Priorities in the Sector
bring plans into effect. As a result, the • Prioritization of HRD in relation
complexity of plans and strategic priorities to strategic priorities
place a strain on the capacity to build the
necessary skills in the sector. In fact, the
assessment of HR needs is so general, that
little can be done to ensure the HR capacity
is in place to advance particular strategic
priorities.
2.4 There are several units in DEAT which • A more streamlined and
Streamlining the manage some aspect of HRD for the sector. focussed approach to HRD
Management of HRD in DEAT Each unit runs its own programmes, thus providing more effective
sometimes without reference to the other or leadership to the sector
without reference to other skills development • Greater programmatic
efforts in the sector. Subsequent duplication consistency
results.
2.5 The viability of the tourism sector is • A demand-driven systems for
Enhanced Human Resource compromised by the ineffectiveness of skills preparing HR for the sector
Planning for the Tourism development. Part of this ineffectiveness • Greater consistency and less
relates to the absence of a demand-driven strategies in the supply of
Sector – Supply and Demand training infrastructure and the level of proper labour for the sector
Assessment and management of sources of HR supply. The • Greater geographic
Management result is a variety of structural inefficiencies in representation in the
the tourism labour market availability of talent
2.6 Many HRM issues affect the nature and • Greater stability of labour in the
Improved HRM Practices in utilization of talent in the sector. Issues such sector
as compensation, promotability, working • Improved climate for investing
Support of HRD
conditions, work initiatives and lack of training in HRD
affect the quality and mobility of labour in the
sector. Sound HRD in the sector is reliant on
the nature of HRM practices
2.7 The sector is plagued by the absence of high • More information-based
Knowledge and Information quality information for decision making. decision making
Management for the Tourism While research and data exists in the field, • Greater effectiveness and
there is no central point for processing data, efficiency in the management
Sector no legitimate means to assure quality and no of the sector
discipline and thoroughness in the manner in • More effective management of
which data is manipulated and processed for HR supply and demand
making decisions. Many critical decisions are
therefore made based upon data that is
inadequate.
HRD Strategy for the Tourism Sector : 31 March 2008 94
PILLAR TWO
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
ORGANIZATIONAL
SUPPORT INITIATIVES
Table 25: OBJECTIVES & SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR:
ORGANIZATIONAL SUPPORT INITIATIVES
PILLAR TWO
CRITICAL
COMPONENTS CORE OBJECTIVES AND CONCEPTUAL SUB-OBJECTIVES
OF THE HRD FRAMEWORK REFERENCE
STRATEGY
HRD Strategy for the Tourism Sector : 31 March 2008 95
PILLAR TWO
CRITICAL
COMPONENTS CORE OBJECTIVES AND CONCEPTUAL SUB-OBJECTIVES
OF THE HRD FRAMEWORK REFERENCE
STRATEGY
2.1 • Assess tourism implications of each element of
Organizational Support refers to those activities that are undertaken in order to ensure that organizations are ready so
DEAT’s mandate
Structural • Develop an integrative tourism operational plan which
Arrangements in embodies considerations related to environment
DEAT to enable • Isolate and effect collaboration on joint HRD initiatives
Integrative Planning
in support of Tourism
(environment,
conservation,
biodiversity etc)
2.2 • Create an organizational focal point for all
transformation initiatives
support, sustain and effectively utilize their human resources
Adoption of an • Prepare a comprehensive transformation acceleration
Integrated and
PILLAR TWO – ORGANIZATIONAL SUPPORT
strategy that is inter-departmental and inter-sectional
Coordinated • Establish a monitoring and evaluation structure for
Programme for tracking progress in transformation
• Consolidate incentives for accelerating transformation
Accelerating in private enterprises
Transformation in the
Sector
2.3 • HRD targeting strategy to add value to critical
business priorities
Assessing the HRD • Develop guidelines for assessing and outlining the
Implications of HRD implications of strategic initiatives
Strategic Priorities in • Assess human resource gaps and needs in respect to
the Sector strategic priorities
• Adopt and nurture an HRD targeting support function
at DEAT
• Assess response capacity for HRD in relation to
strategic targets and according to levels of delivery
where HR is used
• Assess the training implications of alternative tourism
growth paths
2.4 • Assess the incidence in DEAT of HRD assignments
related to the sector
Streamlining the • Develop structures and policies for internal
Management of HRD coordination on HRD matters related to the sector
in DEAT • Reflect inter-unit HRD initiatives in operational and
business plans
2.5 • Comprehensive assessment of human resource
supply for the sector by sub-sector and GCP focus
Enhanced Human areas (public and private)
Resource Planning • Comprehensive assessment of human resource
for the Tourism demand by sub-sector and GCP focus areas
Sector – Supply and • Comprehensive assessment of HR gaps by sub-sector
and by GCP focus areas
Demand Assessment • Adopt programmes to address the structural
and Management anomalies of HR allocation in the sector (seasonality,
over-supply in geographic areas; etc.)
• Creating dependable supply streams of talent for the
tourism sector
HRD Strategy for the Tourism Sector : 31 March 2008 96
PILLAR TWO
CRITICAL
COMPONENTS CORE OBJECTIVES AND CONCEPTUAL SUB-OBJECTIVES
OF THE HRD FRAMEWORK REFERENCE
STRATEGY
2.6 • Facilitating and monitoring compliance to DoL sectoral
determination 14
Improved HRM • Developing and adopting skills retention policy,
Practices in Support strategy and programme for scarce and critical skills
of HRD • Effective management of employee health and
wellness
• Promoting move effective career planning and talent
management in enterprises
• Constitution and support of an HRM “best practices”
forum for the sector
2.7 • Information clearing house or research centre for
tourism and skills development research and
Knowledge and information management
Information • Ongoing tracer studies in learners
Management for the • Regular publication of critical information to inform
Tourism Sector stakeholders in sector of findings and developments in
the sector
• Comprehensive baseline information on service
providers in tourism
• Comprehensive monitoring of training standards
compliance
• Ongoing publication of best practice research
• Comprehensive tourism research and statistics with
implications for policy and practice (including training)
iii. Governance: Governance here refers to the manner in which leadership in the sector
is orchestrated and exercised in order to promote coherence, consistency and
collaboration in meeting the strategic priorities of the sector. Good governance is seen
as an essential response to the fragmentation, misalignment, inconsistency and
diversity which are noted to exist and it is seen as a measure to fill the gaps in
leadership which affect coherence in the sector. This concept of governance is not
restricted to the public sector, it is not isolated to particular geographic regions which
will become the centre of administrative activity and, it is not focused on administration
and rigid compliance. This concept of governance must involve the private sector and
its respective bodies and associations; it must encompass all levels and spheres of
government; and it must seek the long term interest of the sector as a whole.
Governance here refers to the manner in which the sector collaboratively manages itself
to excellence and global competitiveness.
Governance is the third pillar of the strategic framework for rebuilding HRD in the
sector. As the third pillar, it recognizes the role and value of capacity development and
it notes the importance of selected organizational variables for making HRD work. But
all the initiatives of the strategic framework will not cohere into a productive course of
action unless governance structures and arrangements are in place.
To this end, seven areas of focus are identified for enhancing governance in the sector
to the ultimate benefit and performance of HRD. These areas of focus are detailed in
HRD Strategy for the Tourism Sector : 31 March 2008 97
Figure 7 with the associated strategic intent; and the rationale and intended outcomes
are noted in Table 26. In addition, Table 27 presents the sub-objectives related to each
focus area or core objective. The intent of Table 26 is to specify in more detail the
strategic direction to which some of the core objectives point.
HRD Strategy for the Tourism Sector : 31 March 2008 98
Figure 7: STRATEGIC FOCUS ON GOVERNANCE
STRATEGIC FOCUS AREAS STRATEGIC INTENT
3.1
Develop and Implement a To begin to take stock of developments in
Framework for Monitoring, HRD and to chart its progress in adding
Evaluation & Impact Assessment value to the sector
of HRD in the Sector
3.2
Adoption of a Comprehensive To establish more adequate lines of
Stakeholder Engagement communication and engagement in order to
Programme to Consolidate HRD establish coherence in action among
Efforts in the Sector stakeholders for the benefit of the sector
3.3 To establish a coherent and unified sector
Streamlining the Administration of with streamlined governance down to
the Sector communities so that strategic priorities for
the sector are adopted appropriately and
consistently across jurisdictions
GOVERNANCE
3.4
Developing and Streamlining To establish a unified and coherent policy
Policy and Policy Framework for framework within and through which HRD
the Management of HRD in the sector can be governed
3.5
Tourism Education Database and To establish a more efficient and demand-
Information System for the Demand- driven training system in order to ensure an
led Management of Skills appropriate and consistent supply of talent
Development (as part of clearing to the sector
house)
3.6
Alignment & Streamlining of Tourism To promote HRD strategy development in
HRD Strategies to Consolidate Efforts the sector as common practice and to align
with the Private Sector and Across all strategies with the focus and thrust of
Spheres of Government the national HRD strategy for the sector
3.7 Establishing a framework for ensuring that
Alignment of Tourism Plans and strategic obligations are coordinated and
Strategies within a National and streamlined in the manner in which they are
Inter-Provincial Framework of Action planned, undertaken and assessed.
HRD Strategy for the Tourism Sector : 31 March 2008 99
Table 26: SUMMARY OF RATIONALE AND INTENDED OUTCOMES
PILLAR THREE
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
GOVERNANCE
3.1 Human resource development is not seen • A unified national plan and
Develop and Implement a as one cohesive and integrated function for tracking system for tracking HRD
Framework for Monitoring, the sector as a whole. THETA defines its in the sector.
role narrowly, DEAT relies on a few
Evaluation & Impact
fragmented and uncoordinated projects and
Assessment of HRD in the other government entities participate and
Sector seek to add value as appropriate. There is
no national plan or system for the
governance and monitoring of HRD. As a
result, there are extensive gaps and
shortfalls in the national system for skills
development in the sector.
3.2 All stakeholders are aware of the skills • Mobilization of stakeholders into
Adoption of a development shortfalls of the sector and all a concerted momentum of action
Comprehensive Stakeholder are committed to some means of • Collaborative and integrated
strengthening the performance of the sector efforts for skills development
Engagement Programme to
through skills development. Unfortunately,
Consolidate HRD Efforts in there is no viable platform from which this
the Sector could be done. There is need to bring
stakeholders together in a unified thrust in
order to build a more productive system of
skills development.
3.3 HRD in the sector is currently fragmented • More coordinated and integrated
Streamlining the and inefficient as a result of uncoordinated efforts to build skills for the
Administration of the Sector governance structures and planning and sector
delivery mechanisms which do effectively • Greater consistency and follow-
link national practices with the initiative of through in the administrative
communities. priorities.
3.4 Except for the national HRD strategy for the • A coherent policy framework for
Developing and Streamlining public service, the NSDS and the national HRD in the sector within which
Policy and Policy Framework HRD strategy, there is no national all HRD efforts can be
framework for HRD in the tourism sector. embodied.
for the Management of HRD The SSP of THETA does not provide an
adequate plan or framework, and other
initiatives of the various government
departments, although worthwhile, do not
cohere into a unified programme. There is
need therefore for a coherent policy
framework for HRD.
3.5 There is no reliable and comprehensive data • Education and training database
Tourism Education Database on HRD in the tourism sector. Available for the tourism sector
and Information System for data represents only a small number of • Customised data and reports on
establishments, and data is not properly the status of skills supply and
the Demand-led processed and manipulated for decision demand on labour market
Management of Skills making. Skills development in the sector is dynamics
Development (as part of therefore compromised through the absence
clearing house) of a comprehensive body of data related to
education.
HRD Strategy for the Tourism Sector : 31 March 2008 100
PILLAR THREE
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
GOVERNANCE
3.6 There is little coordination of tourism • More streamlined development
Alignment and Streamlining business and HRD strategies across of HRD strategies in line with
of Tourism HRD Strategies spheres of government. IDPs and LED core principles and a common
strategies of local government are strategic direction
to Consolidate Efforts with
sometimes not coordinated with national or
the Private Sector and regional priorities.
Across Spheres of
Government
3.7 Although governmental structures are in • More collaboration between
Alignment of Tourism Plans place to coordinate plans and strategies, the spheres of government in
and Strategies within a roles and responsibilities for coordination meeting business and strategic
are not clear. As a result, there are gaps priorities in HRD
National and Inter-Provincial
and shortfalls in coordination which result in
Framework of Action fragmentation and adherence to multiple
and conflicting priorities.
HRD Strategy for the Tourism Sector : 31 March 2008 101
Table 27: OBJECTIVES AND SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR
PILLAR THREE
CRITICAL
COMPONENTS CORE OBJECTIVES AND SUB-OBJECTIVES
OF THE HRD CONCEPTUAL FRAMEWORK
STRATEGY REFERENCE
order to promote coherence, consistency and collaboration in meeting the strategic priorities of the
• Establish framework and system for monitoring of compliance
Governance refers to the manner in which leadership in the sector is orchestrated and exercised in
3.1
Develop and with strategic initiatives
Implement a • Establish plan structure and guidelines for promoting and
monitoring the impact of training on service delivery
Framework for
• Convene annual conferences to report on status and
Monitoring, Evaluation progress with HRD in the sector in line with specified targets
& Impact Assessment
of HRD in the Sector
3.2 • Promoting HRD learning networks in the sector
Adoption of a • Adoption of an exchange programme between the private
Comprehensive sector and HRD management in the public sector
Stakeholder • Ensure a comprehensive communication programme in the
sector for streamlining tourist developments between public
Engagement
PILLAR THREE – GOVERNANCE
and private entities
Programme to • Prepare guidelines and protocols on stakeholder engagement
Consolidate HRD to be used by local municipalities and communities
Efforts in the Sector • Preparing of a skills development charter based on core
principles for the adherence of all stakeholders in the sector
3.3 • Assess administrative and performance blockages to sector
performance and replace with uncomplicated admin systems
sector.
Streamlining the
and procedures.
Administration of the
• Clarifying, strengthening and aligning governance roles in
Sector HRD
• Outlining roles for the management of HRD down to
communities with associated policy guidelines for compliance
• Provide incentives for the consolidating and streamlining of
private bodies involved in tourism.
• Alignment and integration of programmes and initiatives of all
stakeholders (public & private)
• Strengthen the authority and impact of the HRD coordination
forum
• Formalise and strengthen the inter-sector forum on skills
development for the tourism sector
• Establish objectives and targets for HRD for the sector as a
whole (public private; national local)
3.4 • Consolidate HRD policies into one operational and strategic
Developing and framework for the sector
Streamlining Policy • Develop and adopt a system to ensure policy articulation
between spheres of government so that the national and local
and Policy Framework
strategic priorities are met
for the Management of • Use current integrated structures to lead and manage HRD
HRD policy implementation across spheres of government
• Develop initiatives and incentives to align private sector
priorities with the national agenda for HRD
HRD Strategy for the Tourism Sector : 31 March 2008 102
PILLAR THREE
CRITICAL
COMPONENTS CORE OBJECTIVES AND SUB-OBJECTIVES
OF THE HRD CONCEPTUAL FRAMEWORK
STRATEGY REFERENCE
3.5 • Compile national registers to maintain and manage quality
Tourism Education and overall capacity development in HRD (trainers,
Database and programmes by institutions, guides)
• Registry of available courses by institution, province and
Information System
quality designation
for the Demand-led • Registry of learnership sites in the sector
Management of Skills • Performance statistics in respect to institutional output and
Development (as part success in national assessment and examinations
of clearing house)
3.6 • Preparation of an implementation guide to be used by
Alignment and stakeholders in implementing the national HRD strategy
Streamlining of • Guidance and promotion of HRD strategies for boards and
associations in line with national strategy
Tourism HRD
• The preparation of sub-sector level HRD strategies in line
Strategies to with national strategy
Consolidate Efforts • Encouragement of enterprise level HRD strategies through
with the Private Sector technical assistance and incentives
and Across Spheres
of Government
3.7 • Preparation of guidelines for aligning plans and strategies
Alignment of Tourism • Detailing of HRD strategic obligations down to community
Plans and Strategies level
• Detailing of HRD strategic obligations within an integrated
within a National and
framework
Inter-Provincial
• Put structures in place for the preparation of an annual report
Framework of Action on implementation progress nationally
iv. Strengthening Linkages to Economic Growth & Development Initiatives: The
fourth pillar of performance is that of strengthening linkages with the economic growth
and development initiatives of government, particularly as these relate to the promotion
of skills development for global competitiveness in the tourism sector. Its role or the
fourth pillar of performance is well established. Tourism is one of the priority areas for
economic growth and development in South Africa, and it is considered as a most fertile
terrain for the advancement of the government’s transformational initiatives. As a result,
many government initiatives in this regard target the tourism sector as an environment
where programme interventions such as JIPSA, ASGISA and EPWP could accrue
significant benefits to the economy. But significant benefits will not accrue from these
programmes for the sector as a whole if they are not properly coordinated, and if they
are not orchestrated in a manner where geographic representativity and potential for
economic impact are assured. Strengthening linkages to economic growth and
development, there fore, refers to the efforts which will be undertaken to ensure that
there is an added boost to the performance of the sector through special programme
interventions. In this manner, such programmes cannot be mere appendages to the
routine and sometimes non-productive skills development operations which currently
exist. Such programmes must be made to add value. They must fill gaps, but they must
simultaneously transform; they must also serve as the catalyst for generating new
HRD Strategy for the Tourism Sector : 31 March 2008 103
structures and promoting creative approaches; and, not least of all, they must highlight,
foster and promote economic relevance and impact.
Priorities for establishing linkages to economic growth and development initiatives are
illustrated in Figure 8. Six strategic focus areas or core objectives are identified, and,
for each, the strategic intent is noted. Further details on this pillar are provided in
Tables 28 and 29.
Figure 8: LINKAGE TO ECONOMIC GROWTH & DEVELOPMENT INITIATIVES
STRATEGIC FOCUS AREAS STRATEGIC INTENT
4.1
Expand the reach of ASGISA and other
Strategic mobilization of a
programmes through the mobilization of
geographically representative group
more employers from different geographic
of employers in the sector to
areas
maximize geographic access to
economic development priority
programmes (ASGISA, EPWP)
4.2
Promoting integrated and inter- Establishing structures which could
sectoral approaches in responding facilitate integrated and inter-sectional
to tourism training initiatives responses on government priority
targeted to economic development programmes for the sector
4.3
Promote Capacity Development for Greater capacity among planners and
the integration of tourism priorities in public officials to integrate and streamline
LINKAGE TO the strategic plans and priorities of tourism priorities in development plans and
government (PGDP, IDPs, LED documents
ECONOMIC strategies, etc)
GROWTH AND
DEVELOPMENT
INITIATIVES
4.4
Embark upon awareness promotion Promoting awareness of government
of government’s economic growth priority programmes in the sector in order
and development initiatives to mobilize the support and participation of
stakeholders
4.5 .
Adoption of a targeting strategy in Enable strategic focus on priority
training for GCP in JIPSA and geographic areas in respect to skills
ASGISA in the Tourism Sector development needs and options
4.6
Expansion of programme
initiatives to link skill More effective management of government
development to economic priority programmes (JIPSA) within the
development (JIPSA, ASGISA) tourism sector
HRD Strategy for the Tourism Sector : 31 March 2008 104
HRD Strategy for the Tourism Sector : 31 March 2008 105
Table 28 presents a summary of the rationale and intended outcomes of each focus area,
and Table 29 provides a detailed listing of all the sub-objectives associated with each of the
strategic focus areas.
HRD Strategy for the Tourism Sector : 31 March 2008 106
Table 28: SUMMARY OF RATIONALE AND INTENDED OUTCOMES
PILLAR FOUR
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
LINKAGE TO ECONOMIC
GROWTH & DEVELOPMENT
INITIATIVES
4.1 The benefits of government priority • Greater geographic representativity
Strategic mobilization of a programmes are not fully exploited in in the distribution of government
geographically representative many geographic areas. As a result, priority programmes
group of employers in the
there is little representation of many • Greater representativity of
geographic areas on the map of individuals from depressed
sector to maximize geographic JIPSA initiatives in the sector. Some economic backgrounds
access to economic geographic areas are therefore
development priority disadvantaged in this respect and
programmes (ASGISA, EPWP) potential for skills development for the
sector is compromised
4.2 The tourism sector will benefit most • Greater cohesion in government
Promoting integrated and inter- from inter-sectoral approaches in light programmes related to the sector
sectoral approaches in of the scope and complexity of the
sector; and in light of the many
responding to tourism training government agencies which seek to
initiatives targeted to economic have impact on the sector. While
development inter-sectoral approaches exist, they
are generally not well coordinated and
strategically aligned.
4.3 Many of the strategic documents • More competent and able local
Promote Capacity Development related to tourism are prepared by government officials who can
for the integration of tourism external consultants without the level provide guidance in the preparation
of strategic input from government of tourism related strategies and
priorities in the strategic plans officials that is necessary. It is noted plans
and priorities of government that local officials are not sufficiently • More effective and relevant tourism
(PGDP, IDPs, etc) competent in matters related to plans and strategies that are more
tourism to provide the necessary effectively coordinated and
guidance. Capacity development is administered
necessary.
4.4 Many in the sector are not fully aware • Wider participation of stakeholders,
Embark upon awareness of government priority programmes particularly private enterprises, in
promotion of government’s and the manner in which they may government priority programmes
participate and contribute.
economic growth and
development initiatives
4.5 There is no comprehensive • A well focussed HRD strategy for
Adoption of a targeting strategy programme to mobilize HRD GCP areas with government
in training for GCP in JIPSA resources in the development and participating as part of the delivery
service of GCP areas. A concerted infrastructure
and ASGISA in the Tourism effort is necessary to assess and
Sector mobilize these resources. JIPSA and
other programmes must be part of this
overall strategy.
HRD Strategy for the Tourism Sector : 31 March 2008 107
PILLAR FOUR
AREAS OF FOCUS FOR SUMMARY OF RATIONALE INTENDED OUTCOMES
LINKAGE TO ECONOMIC
GROWTH & DEVELOPMENT
INITIATIVES
4.6 JIPSA is managed as an appendage • A unified structure for the
Expansion of programme to the overall skills development thrust management of government
initiatives to link skill of the sector. It is essential, therefore, priority programmes in tourism
to adopt an integrated management which is part of the overall SSP
development to economic structure which will see JIPSA and
development (JIPSA, ASGISA) other programmes as part of the
overall skills development planning
framework for the sector.
HRD Strategy for the Tourism Sector : 31 March 2008 108
Table 29: OBJECTIVES AND SUB-OBJECTIVES FOR HRD IN THE TOURISM SECTOR
PILLAR FOUR
CRITICAL
COMPONENTS CORE OBJECTIVES AND CONCEPTUAL SUB-OBJECTIVES
OF THE HRD FRAMEWORK REFERENCE
STRATEGY
4.1 • Assessment of geographic representativity of economic
Economic growth and development refers to efforts undertaken to ensure that the tourism sector accrues benefit from
Strategic mobilization growth and development training initiatives in the sector
• Noting gaps in geographic representativity, conduct
of a geographically capacity assessment in designated areas
representative group • Adopt a mobilization campaign for employers to
of employers in the participate in designated areas
PILLAR FOUR – LINKAGE TO ECONOMIC GROWTH & DEVELOPMENT INITIATIVES
sector to maximize
geographic access to
economic
development priority
programmes
(ASGISA, EPWP)
4.2 • Assess inter-sectoral potential of current initiatives
Promoting integrated • Develop strategy for inter-sectoral engagement
• Put in place a unified management structure for inter-
and inter-sectoral sectoral programmes
approaches in
the economic growth and development initiatives
responding to
tourism training
initiatives targeted to
economic
development
4.3 • Guidelines on the integration and incorporation of
Promote Capacity tourism priorities in development planning
• Workshops for provinces and municipalities on tourism
Development for the alignment in development planning
integration of tourism
priorities in the
strategic plans and
priorities of
government (PGDP,
IDPs, etc)
4.4 • Guidance in the promotion of economic growth and
Embark upon development initiatives on DEAT and THETA
operational planning processes
awareness promotion • Internal workshop for staff on operational planning in
of government’s response to the ASGISA initiatives
economic growth and • Reporting protocols, structures and requirements on the
development success of initiatives in response to ASGISA
• Establishment of ASGISA targets in sub-sectors of
initiatives
tourism in different geographic zones in training
4.5 • Establish ASGISA training targets in response to GCP
Adoption of a focus areas
• Incorporation of ASGISA targets in national targeting
targeting strategy in strategy for HRD
training for GCP in
JIPSA and ASGISA in
the Tourism Sector
4.6 • Establish a unified structure for the management of
Expansion of ASGISA initiatives in tourism
• Integrate ASGISA initiatives within overall HR supply
programme initiatives strategy in the sector
to link skill
development to
economic
development (JIPSA,
ASGISA)
HRD Strategy for the Tourism Sector : 31 March 2008 109
8.2.3 Core Principles for Informing, Guiding and Strengthening Strategic
Interventions
One other component for establishing coherence in the sector is a body of principles or a
set of “common understandings” to which all stakeholders in the sector can subscribe. In
spite of the regulatory frameworks which exist, and in spite of the values upon which these
frameworks are founded, there is still no common set of clear and fully endorsed values or
operational perspectives which can be used in the sector as a base from which all can act.
While there are common beliefs and values shared by some in the sector, and while, in
general, most in the sector do align themselves to the trends and expectations defined in
policy, the sector is still disconnected and in discord through its diverse and multiple
interests. As a result, some of the more common beliefs among stakeholders actually have
little force on their actions and engagements. Although policy frameworks and guidelines
are important, these will not, of themselves, establish the level of coherence needed.
Policy sets the direction, but cannot ensure the level of commitment and internalization
needed to bring the coherence and synergy needed. As part of the HRD strategy,
therefore, a set of core principles are proposed. These core principles are the essential
“core lines of action” which will permeate the sector, from government to the private sector,
within all spheres of government and among all enterprises and entities which represent the
sector. These lines of action will represent the basic understandings of all in the sector to
act in coherence with the whole. Each entity, could, in its own way, play its part by aligning
its activities to particular set core beliefs and thereby conform to a generally held body of
operating principles.
A sum total of 14 principles are recommended for establishing the coherence necessary.
But these 14 principles do not represent the sum total of principles which may be
necessary, nor do they represent the body of principles upon which the industry may agree.
In this regard, they are only illustrative of the “basic understandings” upon which the
industry can invest its collective effort. As noted, these principles are areas for concerted
actions which have been selected based on the circumstances which now inhibit the
performance of the sector. To the extent all can subscribe to these principles, and to the
extent that they can become the operational values around which the industry can rally,
these principles can bring a degree of coherence to the sector.
Each principle is itemised and briefly discussed below:
i. Public-Private Partnerships:
The notion of public-private partnerships is now a commonly held view and a
well endorsed practise for building capacity to deliver in the public sector; for
enabling the transfer of knowledge; and, among others, for accelerating
development by capitalizing on comparative advantage. Public private
partnerships are widely practiced in the sector, but it is not a core consideration
which serves as a first principle of action. As a result many areas in which
private participation could add value to public practice are not properly explored.
As a principle of action, each party would explore the benefits to be accrued
through the participation of the other. The industry can continue to make
significant contributions to policy; and the industry can benefit as well from
participation in government programmes. The advantage here is the promotion
HRD Strategy for the Tourism Sector : 31 March 2008 110
of joint solutions and collaborative action which tap into the unique strengths
brought by each party.
ii. Uniformity in Standards
Standards are not uniform in the sector. Whether these standards pertain to
material, facilities and equipment, programmes, the capacity of trainers or the
quality of information, the standards in the field vary. If uniformity of standards is
an operational principle, then the first issues of practice in each area will
become the standards to which all could conform, in each area of performance.
Impact comes not from the existence of the standard, but from the commitment
of all parties to abide by the standards which govern practice in the field. In this
sense, the sector will not be transformed from the top, but from within the
conscience of its diverse structures and entities. As with all other principles,
promoting the uniformity of standards is to promote enrichment and
transformation from within.
iii. Industry Relevance
One of the most pervasive complaints about skills development in the sector is
the lack of industry relevance, and the subsequent inability of graduates to
properly undertake the responsibilities they are assigned in the workplace. But
industry relevance is not a one-sided affair. Education and industry must join
forces in order to promote and sustain the industry relevance of training. The
realization of industry relevance is expensive and demanding, and it requires a
high level of commitment in order to make it work. As an operational principle,
all parties in the sector will commit to play its part in promoting industry
relevance in the interest of service excellence and competitiveness in the sector.
In this manner, the action and processes of educators and trainers as well as
the level of cooperation of employers will be transformed, so that trainees could
have access to industry relevant content and facilities. On the part of educators,
the new level of collaboration will be reflected in the participation of industry in
the design and delivery of educational programmes, and in the design and
accessibility of places of employment in the sector as workplace learning
environments that are properly equipped and managed.
iv. Equalizing Opportunities to Grow and Succeed
Available evidence seems to suggest there are significant inequities in the
opportunities that are available for employees it the sector to nurture and pursue
career paths. In light of the low entry level skills required, and because of the
relative oversupply of labour at entry level occupations, there is little interest in
the sector, as a whole, in properly inducting and developing entry level
employees. In most sub-sectors, particularly in the hospitality sub-sector, those
who enter at low level wages are likely to remain at those levels for most of their
career in the industry. Many employees are therefore fleeting entrants who
enter the sector without intending to stay. But if the sector must grow into its
aspired excellence, then it is necessary to build a viable labour pool “from the
bottom up” moving entrants into careers as their potential and performance will
allow. As a core principle each entity will strive to make their level of
promotability a reality, and each will establish practices which will enable people
HRD Strategy for the Tourism Sector : 31 March 2008 111
to move into careers. This must also be facilitated in the government sector as it
would therefore seek to build some of its talent from within. The major
advantage here is the wide breadth of sector related knowledge that is
established as a foundation for good performance.
v. Enhancing Delivery in Communities
Any commitment to this principle seeks to ensure that there is capacity at the
point where the tourism product is to be delivered. Community here refers to the
many local communities or establishments which are sometimes isolated from
centre stage and from the source of policy direction; communities also refer to
those segments or units within organizations or associations which may not be
informed or kept up to date with policy thrusts and directions. The consequent
lack of alignment between policy and action, and the resulting inability of the
“local community” to engage and deliver services in a manner which is in accord
with a larger programmatic agenda, sometimes result in lack of focus,
fragmented delivery and the under-utilization of valuable resources. The
principle to which all should commit, therefore, is that of streamlining policy and
action so that strategic considerations at the top reach those who function at the
point of delivery. Those who deliver services should be capacitated to act in a
manner that is compliant with a valid programme of action.
vi. Articulation between Levels of Governance
In this regard, the articulation between levels of governance is essential. This is
important in both the public and private sectors. There must be synergy
between levels of governance in order to establish consistency, continuity and
potential for impact. The principle is particularly important in the role and
function of DEAT and other national departments. The synergy and articulation
with provinces, local boards and associations and with local communities are
essential to effective delivery. In DEAT, as with some other national
departments, there is little organizational capacity to delivery “down to
communities”; and, this, too, affects representativity and performance. As a
principle, therefore, synergy between levels of operation is essential.
vii. Strategy Coordination and Alignment
The principle of strategy, coordination and alignment refers to the need to build
an integrated system of delivery based on the alignment of strategic priorities.
The principle entreats all to act in accord with the strategic priorities and
obligations to which the sector commits. This means that these strategic
priorities should be clear, and that their implications upon all stakeholders
should be properly understood. Strategy coordination and alignment therefore
refers to the extent to which strategy for the sector infiltrates the plans and
strategies of department, boards and associations, enterprises and private
entities in the sector. If, for example, transformation is a strategic priority, then
its requirements and obligations on all should be clear, and the plans and
strategic documents of all public and private entities in the sector should seek, in
their own way, to address these transformational priorities. Subscription to the
principle says that, as a body in the sector “our action” will be aligned to the
sector’s strategic priorities.
HRD Strategy for the Tourism Sector : 31 March 2008 112
viii. Accessibility of Opportunity to All
Accessibility to opportunity to all is a fundamental principle which ensures equity
of access to the opportunities provided for growth and development in the
sector. As a principle, it does not only refer to opportunities for employees to
advance in careers within the organization and the sector. It refers to all
opportunities provided in the sector to grow and develop as employees, as
business owners and managers, as policy leaders in front and as industry
leaders in the respective bodies and associations. Accessibility of opportunity
means equalising the accessibility of opportunity for people in the sector to grow
into positions of influence, into wealth and economic wellbeing or into levels of
professional growth and development which propels their career in the sector.
Tourism is labelled as one of the most untransformed sectors in the economy,
and much of the delay in progress in this regard relates to history, tradition and
accepted practices in the sector which systematically denies opportunities to
some and promotes and advances others who are sometimes less well
prepared. Subscribing to this principle will mean that each party has a duty to
act in a manner that will give access to all. In this way, the policy structures
must in place, but the ensuing practices must be consistently applied.
ix. Promoting Transformation
Transformation is very high on the policy and strategic agenda of the country.
Many of the policy and programmatic initiatives now being undertaken have
transformational components which are intended to benefit the sector. But
transformation must have meaning. It cannot be driven by policy without
practical substance and meaning for those who would accrue benefit. While due
regard and recognition must be given to the many initiatives which have
transformation as an end result, note must be made of the slow pace of
transformation in the sector, and the sometimes superficial evidence of
transformation is without any true and definable proof of transformation having
taken place. No individual or entity can be forced to transform. They can be
forced to change; but transformation is more fundamental than change, and
requires a higher level of commitment and internalization about what is being
adopted. This factor as a core principle seeks to enlist the commitment and
internalization of the amount of transformation so that stakeholders are
committed to function rather than form, and to results rather then statistics and
other superficial evidence of change.
x. Articulation and Continuity in Educational Programmes
Articulation and continuity in education and training programmes refer to the
smooth professional and developmental nature of training which builds deep and
valued competence over time rather than ad hoc, intermittent and random
programmes of training which are unrelated and which do not contribute to
career development. A commitment to this principle is evident in many ways in
ensuring practice. All stakeholders will be conscious about the prerequisites to
training and about the necessary follow up courses that will be appropriate after
training. There will be greater commitment to inter-institutional articulation of
courses so that trainees in the sector can pursue smooth and consistent paths
of self development over time. More emphasis will be given to preparing
HRD Strategy for the Tourism Sector : 31 March 2008 113
employees for careers and for career growth over time, rather than preparation
for a series of responsibilities. Such a commitment from all stakeholders places
quality control in the hands of all its users and embeds core values deep within
the practice and norms of the sector.
xi. Promoting Strength through Stakeholder Unity
There are many private bodies and associations within the sector each seeking
to advance its own ends, and each seeking to meet the needs of its own
stakeholder community. The result is a fragmented and fractured sector where
result is a fragmented and fractured sector where the true benefits of the
inherent capacity of the sector cannot be realised. The more communities,
organizations and associations continue to act independently, the more the
sector will under perform and the more it will deviate from realising its true
potential. The solution, perhaps, is that of building a culture of stakeholder unity
in the sector where all act in a shared and common interest, and where all is
prepared to make some degree of personal sacrifices for ends that, in the long
term, benefit the sector as a whole. The key consideration here is the level of
mobilization that is necessary for the sector to formulate the bond of common
purpose. Adherence to this principle will be manifested in the willingness of
stakeholders to share resources and work together, their willingness to establish
collaborative ties and forge unified associations representing a larger frame of
interest and among others, a higher degree of self governance where all parties
take responsibility for the welfare of the sector as a whole.
xii. Shared Information as a basis for Collective Intelligence
The principle of collective intelligence is the critical feature of an organism or
sector that must act in unison. The report here is that all must be equally
informed about developments and requirements so that all have the opportunity
to respond, adapt, or adjust as appropriate. While unshared intelligence may
accrue advantages to some, in general, it does not solicit the best response
from the sector as a whole. A commitment to share information for collective
intelligence in the sector will mean that efforts will be made by all stakeholders
to ensure that the right data on prospects and the performance of the sector are
equally available to all. This means that in addition to official structures for
information sharing, there must be viable Learning networks and other avenues
of knowing in the sector. Each party must take some responsibility for the
availability and the integrity of data.
xiii. Subscribing to a Common Brand in HRD for Tourism
HRD in the sector must be branded. A common brand means that all
stakeholders in the sector will subscribe to and promote this brand. Whether it
is “competing through people”, “building a skills partnership”, or “our people are
our greatest asset” there should be some logo and brand that mobilizes and
excites development in the sector. The notion of branding is core to the agenda
of establishing coherence in the sector. There must be some statement, logo or
jingle that reminds us all that we must believe, first of all in our people because
they are the faces of the products we market. The business of tourism is a
business about people …. people securing people with pride and diligence.
HRD Strategy for the Tourism Sector : 31 March 2008 114
xiv. Consolidating Efforts to Maximize Impact.
In societies where tourism has had accelerated success, the key factor was
mobilization and consolidation of effort toward a single purpose. All sectors and
all related parties focussed on a commonly endorsed agenda with minimal
difference where possible. This intensity of focus builds momentum and adds
value beyond the contribution of its participants. The principle of consolidating
efforts means that, even in communities, efforts must be consolidated to specific
objectives with a degree of single mindedness that will accrue quick results and
have significant spillover in terms of teamwork, momentum and “breakthrough
force” where and when it is necessary. Commitment to this principle is
essentially commitment to, in effect, “join the party” when it is necessary to take
action that will make a difference.
HRD Strategy for the Tourism Sector : 31 March 2008 115
9. A PLAN OF ACTION FOR IMPLEMENTING THE HRD STRATEGY
FOR THE TOURISM SECTOR
9.1 Introduction and Purpose
The previous chapters have outlined, in detail, the various components of the HRD
strategy for the sector. The objectives and sub-objectives listed have been raised in
response to the context and circumstances which limit or impede the value that skills
development can add to the sector’s viability and performance. Together, when
undertaken, these objectives can assist in recreating a more viable skills development
infrastructure for the sector. The issue to be raised, however, is the manner in which
these objectives will be executed so as to preserve a sense of order and integrity in
implementation. Certainly, it will not be possible to undertake all these initiatives at the
same time. A sense of order must be preserved. In preserving this sense of order,
interventions must be properly phased so that each can build on the other and each can
be incorporated into policy and organizational environments that are receptive and
appropriate. The purpose of this chapter is to present the basic features of an
implementation-focused action plan. The intent here is to reflect on what will be necessary
to bring the strategic framework into effect.
The approach used in designing an action plan is a project approach. In this sense, the
strategy is formulated into a series of projects which can be implemented over time. The
value of the project approach is that it clusters strategic activities into groups of related
tasks which can be reasonably accomplished as a whole. In addition, this approach
makes it easier to mobilize and allocate funding; easier to target and align the correct
stakeholder support; more convenient to identify the most appropriate structures and
frameworks for implementation, and among others, easier to track and monitor progress
and achievements
This chapter is therefore divided into four sections. The first section describes the
recommended structure for the implementation projects. The second section describes
the project framework and seeks to relate the series of projects identified to the focus
areas of the conceptual framework in the previous chapter. The third section seeks to
outline basic considerations for the development of each project, and the fourth section
seeks to sketch the manner in which each project may unfold according to a five-year time
table.
It should be noted here that neither the projects themselves nor the associated timelines
are “set in stone” and confined approaches or dates for execution. The chapter, at this
time, is only illustrative of the manner in which the strategic framework may unfold.
Changes may be appropriate as structures for implementation are set in motion.
9.2 The Structure for Project Implementation
Figure 9 presents the recommended structure for project implementation. It is
recommended that the HRD strategy be driven from DEAT, through an integrated HRD
HRD Strategy for the Tourism Sector : 31 March 2008 116
team which is comprised of all HRD officials in DEAT. The team should be chaired by
DDG Tourism and should have a specially designated secretariat and mandate to oversee
the implementation of the HRD strategy. The team may also have an advisory group
which it may be use for advice and technical support. The first mandate of the team is the
implementation of the strategy. A director for this team should be selected by DEAT from
its internal staff.
This internal group will oversee three cabinet appointed task forces that will take
responsibility for separate aspects of the strategy as follows: Management; Governance
and Administration; and Promotion and Advocacy. Each group will have its own mandate
and an established set of projects to design, implement and monitor. As noted, each
group will be allocated 5 projects as discussed in the next section of this chapter. Each
project will have project advisory teams constituted of government and industry
representatives.
Figure 9: RECOMMENDED STRUCTURE FOR PROJECT IMPLEMENTATION
DEAT
(contracted HRD team)
Training Governance & Promotion &
Management Administration Advocacy
Task Force Task Force Task Force
A B C
Projects Projects Projects
Project Oversight Project Oversight Project Oversight
Teams Teams Teams
Government & Government & Government &
Industry Industry Industry
Stakeholders Stakeholders Stakeholders
HRD Strategy for the Tourism Sector : 31 March 2008 117
9.3 The Project Framework
The project framework is presented in Figure 10. The HRD strategy is constituted of 15
projects with each task force being assigned 5 projects for management and execution.
Each task force has a distant set of project responsibilities as described briefly below:
i. The Training Management Task Force
The training management task force will take responsibility for all projects
related to capacity development. The role of the task force is to ensure that the
projects are designed and executed in a manner that will contribute to skills
development effectiveness and eventuality to the performance of the sector. It
is recommended that the skills development task force be a newly constituted
body with a readily appointed profile of government and industry stakeholders so
that a new and fresh look could be taken on the structures and processes for
skills development in the sector. As a task force the mandate of the body will
not be permanent but transitional. The body may evolve into or be the basis for
the creation of whatever supplemental structures are viewed desirable for skills
development in the sector.
Figure 10: PROJECT FRAMEWORK FOR IMPLEMENTING THE HRD STRATEGY FOR THE TOURISM
SECTOR
PROJECT TASK TEAMS
A. B. C.
TRAINING MANAGEMENT GOVERNANCE & PROMOTION & ADVOCACY
ADMINISTRATION
1. 1. 1.
Promoting Accessibility in Knowledge & Information Building a Tourism Culture
Training Management
2. 2. 2.
Strengthening Workplace Plan and Strategy Integration An HRD Charter for the Sector
Learning
3. 3. 3.
Local Government Capacity Strengthening Structure for Promoting Tourism Education
Development in Tourism HRD Management
4. 4. 4.
Leadership Development for the Coordination Unit for Sector An Employment Charter for the
Tourism Sector Transformation Sector
5. 5. 5.
Back to Basics Advancing a Code of Practice Stakeholder Engagement
Programme
HRD Strategy for the Tourism Sector : 31 March 2008 118
Figure 11: CONCEPTUAL FRAMEWORK WITH REFERENCE TO PROJECTS
A
Vision for HRD in
the Tourism Sector
Sustained and efficient human capital formation
to grow a service-oriented and world class tourism enterprise
Human Capital Formation and Utilization for a World Class Tourism Enterprise
Structural Arrangements in Develop & Implement a Strategic Mobilization of
Management and DEAT to enable Integrative Framework for Monitoring, Geographically
Leadership Development Planning in Support of Evaluation & Impact Representative Group of
(Project A4) Tourism (environment, Assessment of HRD in the Employees in the Sector to
conservation, biodiversity, etc) Sector (Project B1) Maximize Access to
(Project B2) Economic Development
Adoption of a Priority Programmes
Skills Development Comprehensive Stakeholder (ASGISA, EPWP)
Packaging for SMMEs Adoption of an Integrated & Engagement Programme to (Project A1)
(Project A4) Coordinated Programme for Consolidate HRD Efforts in
Accelerating Transformation the Sector (Project C5) Promoting Integrated &
Promoting Access to in the Sector Inter-Sectoral Approaches in
Education and Training in (Project B4) Responding to Tourism
the Sector Streamlining the Training Initiatives Targeted
(Project A1) Administration of the Sector to Economic Development
Assessing the HRD (Project B3) (Project A1)
Strengthening Workplace Implications of Strategic
Learning through Effective Priorities in the Sector Promote Capacity
Training Management (Project B2) Developing & Streamlining Development for the
(Project A2) Policy and Policy Integration of Tourism
Framework for the Priorities in the Strategic
Management of HRD Plans and Priorities of
Building Core and Generic Streamlining the (Project B2) Government (PGDP, IDPs)
Competencies for the Sector Management of HRD in (Project B2)
(Project A5) DEAT
(Project B3) Tourism Education Embark upon Awareness
Database & Information Promotion of Government’s
Growing a Tourism Culture System for the Demand-led Economic Growth &
through Training Management of Skills Development Initiatives
(Project C1) Enhanced Human Resource Development (as part of (Project C5)
Planning for the Tourism clearing house)
Sector (Project B1)
Building Tourism (Project B1)
Competency in Local Alignment and Streamlining Adoption of a Targeting
Government of Tourism HRD Strategies Strategy in Training for GCP
(Project A3) to Consolidate Efforts with in JIPSA and ASGISA in the
Improved HRM practices in the Private Sector & Across Tourism Sector
support of HRD Spheres of Government (Project A1)
Strengthening the Role of (Project B5) (Project B2)
Industry in Training
(Project A2)
Expansion of Programme
Knowledge and Information Alignment of Tourism Plans Initiatives to Link Skill
Promoting Effectiveness in Management for the & Strategies within a Development to Economic
the Delivery & Management Tourism Sector National and Inter-Provincial Development (JIPSA,
of Training in the Sector (Project B1) Framework of Action ASGISA)
(Project A1) (Project B2) (Project A1)
CAPACITY ORGANIZATIONAL GOVERNANCE ECONOMIC GROWTH &
DEVELOPMENT Initiatives SUPPORT Initiatives to DEVELOPMENT
to strengthen capacity Initiatives to ensure that strengthen governance of HRD initiatives to support
development structures, organizations are ready to HRD in the & sustain economic
systems and services in adequately sustain & use Sector growth & development &
the Sector their human resources related interventions
4 Key pillars for enhancing human capital formation & utilization in order to attain & sustain a world class tourism enterprise
Enriching Delivery in
Consolidating efforts
through Stakeholder
Articulation between
to maximize impact
Promoting Strength
Grow and Succeed
Shared Information
Opportunities to All
Common Brand in
Transformation in
HRD for Tourism
Subscribing to a
Opportunities to
Articulation and
Accessibility of
Coordination &
Public Private
as a basis for
Communities
Programmes
Partnerships
Uniformity in
Continuity in
Governance
Education &
Intelligence
Relevance
the Sector
Promoting
Standards
Alignment
Collective
Levels of
Equity in
Strategy
Training
Industry
Unity
Core principles for informing, guiding and strengthening HRD strategic interventions
National structure of Tourism
HRD Strategy for the Tourism Sector : 31 March 2008 Boards, Associations, Enterprises & Training Institutions 119
National legislative and Strategic Frameworks of Government
HRD Strategy for the Tourism Sector : 31 March 2008 120
As shown above, the training management task force is assigned five projects. Table 30
presents an itemization of each project with a summary of the content and focus areas of
each project. The projects assigned to the Training Management Task Force are itemized
in the table below:
Table 30: TRAINING AND MANAGEMENT TASK FORCE INTERPRETATION OF PROJECTS WITH
ASSOCIATED CONTENT AND FOCUS AREAS
PROJECTS IN RECOMMENDED CONTENT AND FOCUS AREAS
TRAINING
MANAGEMENT
• Rationalizing the training environment and supply stream for human resources in tourism
1. • Institute a programme of e-learning or e-training to be accessed by public and private
Promoting enterprises
Accessibility in • Establishment of a coordinated training network nationally with selected core providers
Training to ensure representativity of training opportunities in all sectors
• Identification of geographic areas with gaps in training delivery and institute a
development programme
• Adoption of RPL in enterprises in order to enable greater access and enhance
promotability
• Institute and strengthen policy measures and support structures to ensure that access is
not denied through affordability
• Promoting and enforcing standards and competitiveness for trainees in tourism
• Fostering the availability of high quality training materials that are easily accessible
• Development of skills profiles for all occupations in the sector
• Articulation of courses in the sector by levels from basic and generic core competencies
to specialized and managerial skills
• Developing and enforcing standards for training facilities and programmes
• Developing and enforcing standards for learning materials
• Policy intervention to bridge differences in course quality, standards and contact
• Assessment of geographic representativity of economic growth and development training
initiatives in the sector
• Noting gaps in geographic representativity, conduct capacity assessment in designated
areas
• Adopt a mobilization campaign for employers to participate in designated areas
• Assess inter-sectoral potential of current initiatives
• Develop strategy for inter-sectoral engagement
• Put in place a unified management structure for inter-sectoral programmes
• Establish ASGISA training targets in response to GCP focus areas
• Incorporation of ASGISA targets in national targeting strategy for HRD
• Establish a unified structure for the management of ASGISA initiatives in tourism
• Integrate ASGISA initiatives within overall HR supply strategy in the sector
• Implement incentives and a programme for enterprises to include investment in people
2. • Provide incentives to create opportunities for experiential learning for trainees
Strengthening • Establish policy guidelines and protocols for career pathing in enterprises to begin with
Workplace Learning induction
• Establish protocols and policy guidelines for scarce skills retention management
• Promote incentives for industry to offer internships, learnerships and various forms of
experiential learning
• Incentives for industry involvement in curriculum development
• Outsourcing some publicly funded training to private and business entities
• Enhancing industry participation in policy and strategic bodies
• Expanding reach of local government toolkit
3. • Developing guidelines for HRD strategy development and implementation for local
Local Government government
Capacity Development • Developing a tourism management training programme for relevant local government
in Tourism and community officials
HRD Strategy for the Tourism Sector : 31 March 2008 121
PROJECTS IN RECOMMENDED CONTENT AND FOCUS AREAS
TRAINING
MANAGEMENT
• Adopt a management development programme in policy leadership and strategic
4. management in the sector that is specially targeted to senior officials in the public sector
Leadership to include coaching and mentoring
Development for the • Provide incentives and a comprehensive programme for accelerated progression of
Tourism Sector talented blacks into management positions
• Develop and implement a sector-specific training programme for managers in
outsourcing to include procurement, project management and contracting
• Establish skills development programming that is specially targeted to SMMEs
• Provide incentives for training providers who serve SMMEs
• Adopt a programme for multi-skilling people particularly for small enterprises
• Provide incentives for training partnerships which monitor, coach or develop operational
skills for staff in SMMEs
• Strengthen ABET provision in the tourism sector
5. • Establishment of a common format and structure for induction in various aspects of
Back to Basics tourism
• Implement a national training programme on core competencies for the tourism sector to
be adopted by training entities and tourism enterprises – communication, maths literacy,
service excellence – and used as bridging courses for tourism training
• Structure a basic supervision course targeted at supervisors in the sector
• Ensure the availability of relevant and basic IT courses for workers in the sector
ii. The Governance and Administration Task Force
The Governance and Administration Task Force will take responsibility for all
organizational and structural initiatives which are essential for the
implementation of the strategy. These initiatives are essentially concerned with
issues related to governance and organizational support for HRD. Again, here,
the task force will plan a special but transitional role in the structure for
implementation. It will also be constituted of government officials and industry
representatives, and will be given whatever authority is required to “make a
difference” in the manner in which the sector’s business is conducted. The work
of the Governance and Administration Task Force is critical to the success of the
strategy. Unless the unsettling matters related to structures and governance are
confronted and overcome, the prospects of the success of the strategy will be
significantly compromised. Here, it is expected that there will be extensive
industry leadership in crafting structures and processes which strengthens the
performance of the sector. Table 31 presents an itemization of the projects
associated with the Governance and Administration Task Force with the
associated content and focus area for project execution.
HRD Strategy for the Tourism Sector : 31 March 2008 122
Table 31: GOVERNANCE & ADMINISTRATION TASK FORCE INTERPRETATION OF PROJECTS WITH
ASSOCIATED CONTENT AND FOCUS AREAS
PROJECTS IN GOVERNANCE RECOMMENDED CONTENT AND FOCUS AREAS
AND ADMINISTRATION
• Comprehensive assessment of human resource supply for the sector by sub-
1 sector and GCP focus areas (public and private)
Knowledge and Information • Comprehensive assessment of human resource demand by sub-sector and
Management GCP focus areas
• Comprehensive assessment of HR gaps by sub-sector and by GCP focus
areas
• Adopt programmes to address the structural anomalies of HR allocation in the
sector (seasonality, over-supply in geographic areas; etc.)
• Creating dependable supply streams of talent for the tourism sector
• Information clearing house or research centre for tourism and skills
development research and information management
• Ongoing tracer studies in learners
• Regular publication of critical information to inform stakeholders in sector of
findings and developments in the sector
• Comprehensive baseline information on service providers in tourism
• Comprehensive monitoring of training standards compliance
• Ongoing publication of best practice research
• Comprehensive tourism research and statistics with implications for policy and
practice (including training)
• Establish framework and system for monitoring of compliance with strategic
initiatives
• Establish plan structure and guidelines for promoting and monitoring the impact
of training on service delivery
• Convene annual conferences to report on status and progress with HRD in the
sector in line with specified targets
• Compile national registers to maintain and manage quality and overall capacity
development in HRD (trainers, programmes by institutions, guides)
• Registry of available courses by institution, province and quality designation
• Registry of learnership sites in the sector
• Performance statistics in respect to institutional output and success in national
assessment and examinations
• Assess tourism implications of each element of DEAT’s mandate
2 • Develop an integrative tourism operational plan which embodies considerations
Plan and Strategy Integration related to environment
• Isolate and effect collaboration on joint HRD initiatives
• HRD targeting strategy to add value to critical business priorities
• Develop guidelines for assessing and outlining the HRD implications of
strategic initiatives
• Assess human resource gaps and needs in respect to strategic priorities
• Adopt and nurture an HRD targeting support function at DEAT
• Assess response capacity for HRD in relation to strategic targets and according
to levels of delivery where HR is used
• Assess the training implications of alternative tourism growth paths
• Consolidate HRD policies into one operational and strategic framework for the
sector
• Develop and adopt a system to ensure policy articulation between spheres of
government so that the national and local strategic priorities are met
• Use current integrated structures to lead and manage HRD policy
implementation across spheres of government
• Develop initiatives and incentives to align private sector priorities with the
national agenda for HRD
• Preparation of an implementation guide to be used by stakeholders in
implementing the national HRD strategy
• Guidance and promotion of HRD strategies for boards and associations in line
with national strategy
• The preparation of sub-sector level HRD strategies in line with national strategy
• Encouragement of enterprise level HRD strategies through technical assistance
HRD Strategy for the Tourism Sector : 31 March 2008 123
PROJECTS IN GOVERNANCE RECOMMENDED CONTENT AND FOCUS AREAS
AND ADMINISTRATION
and incentives
• Preparation of guidelines for aligning plans and strategies
• Detailing of HRD strategic obligations down to community level
• Detailing of HRD strategic obligations within an integrated framework
• Put structures in place for the preparation of an annual report on
implementation progress nationally
• Assess the incidence in DEAT of HRD assignments related to the sector
3 • Develop structures and policies for internal coordination on HRD matters
Strengthening Structure for related to the sector
• Reflect inter-unit HRD initiatives in operational and business plans
HRD Management
• Assess administrative and performance blockages to sector performance and
replace with uncomplicated admin systems and procedures.
• Clarifying, strengthening and aligning governance roles in HRD
• Outlining roles for the management of HRD down to communities with
associated policy guidelines for compliance
• Provide incentives for the consolidating and streamlining of private bodies
involved in tourism.
• Alignment and integration of programmes and initiatives of all stakeholders
(public & private)
• Strengthen the authority and impact of the HRD coordination forum
• Formalise and strengthen the inter-sector forum on skills development for the
tourism sector
• Establish objectives and targets for HRD for the sector as a whole (public
private; national local)
• Create an organizational focal point for all transformation initiatives
4 • Prepare a comprehensive transformation acceleration strategy that is inter-
Coordination Unit for Sector departmental and inter-sectional
• Establish a monitoring and evaluation structure for tracking progress in
Transformation
transformation
• Consolidate incentives for accelerating transformation in private enterprises
• Facilitating and monitoring compliance to DoL sectoral determination 14
5 • Developing and adopting skills retention policy, strategy and programme for
Advancing a Code of Practice scarce and critical skills
• Effective management of employee health and wellness
• Promoting move effective career planning and talent management in
enterprises
• Constitution and support of an HRM “best practices” forum for the sector
iii. The Promotion and Advocacy Task Force
The Promotion and Advocacy Task Force will undertake the responsibility of
facilitating a communication and awareness within the sector in order to create
an environment for success. The work of this task force is that of mobilizing
support and building positive sentiments which will ensure the success of the
strategy. The assignment is subtle, but critical. The task force will run five
promotional and public relations programmes which will be in effect the five
projects that are assigned to the body. These projects are both public relations
and education programmes and will serve as mass communication instruments
that could build unity of vision and coherence in the sector. The role of this task
force is to extend the reach of the other task forces, and to thereby create an
environment for their success. As a result, this task force must work in
collaboration with both the training management and Governance and
Administration Task Forces
HRD Strategy for the Tourism Sector : 31 March 2008 124
Table 32 presents a listing of the projects assigned to the promotion and
Advocacy Task Force with the associated content and focus areas for project
execution.
Table 32: PROMOTION AND ADVOCACY TASK FORCE INTERPRETATION OF PROJECTS WITH
ASSOCIATED CONTENT AND FOCUS AREAS
PROJECTS IN PROMOTION RECOMMENDED CONTENT AND FOCUS AREAS
AND ADVOCACY
• Public training and tourism drive on “Tourism and You”
1 • Developing and marketing a structured and multi-level training programme in
Building a Tourism Culture tourism awareness to promote local and national tourism knowledge
• Promote experiential learning in all schools to introduce learners to the tourism
sector
• Implement a training programme on the roles and responsibilities of
stakeholders in tourism
• Develop and promote a national service excellence training programme
• Develop and promote a national training programme on community participation
for tourism enterprises
• Expand the reach of tourism ambassador programme
• Ensure training priorities are in line with destination, positioning and branding
• Core principles for strengthening HRD at the enterprise level to which all can
2 subscribe
An HRD Charter for the Sector • Incentives for adoption of the HRD organizational charter
• Guidelines for the adoption of the HRD charter
• Demand-led education and training
• HRD strategy development
• Rationalization of tourism education in primary and secondary schools
3 • Career guidance for the tourism industry
Promoting Tourism Education • Tourism mentorship programmes
• Corporate citizenship in public education in tourism
• HRM best practices which sustain HR in the sector
4 • HRM charter guidelines and incentives
An Employment Charter for • Promoting policy frameworks for employment and conditions of employment in
the Sector the sector
• Promoting HRD learning networks in the sector
5 • Adoption of an exchange programme between the private sector and HRD
Stakeholder Engagement management in the public sector
Programme • Ensure a comprehensive communication programme in the sector for
streamlining tourist developments between public and private entities
• Prepare guidelines and protocols on stakeholder engagement to be used by
local municipalities and communities
• Preparing of a skills development charter based on core principles for the
adherence of all stakeholders in the sector
• Wider participation of stakeholders, particularly private enterprises, in
government priority programmes
• Promoting HRD learning networks in the sector
• Adoption of an exchange programme between the private sector and HRD
management in the public sector
• Ensure a comprehensive communication programme in the sector for
streamlining tourist developments between public and private entities
• Prepare guidelines and protocols on stakeholder engagement to be used by
local municipalities and communities
• Preparing of a skills development charter based on core principles for the
HRD Strategy for the Tourism Sector : 31 March 2008 125
adherence of all stakeholders in the sector
9.4 Basic Considerations for the Development of Projects
A specification sheet is prepared for each project in order to assist in its conception,
design and development. The purpose of the specification sheet is to make note of basic
considerations which may serve as a guide in project planning. Table 33 presents a
summary of each of the content areas of the specification sheet with a brief description of
each of the areas. Following this table, a project specification sheet is prepared for each
of the 15 projects identified.
Table 33: SUMMARY OF CONTENT OF PROJECT SPECIFICATION SHEETS
CONTENT AREA DESCRIPTION
Title This is a recommended title for the project. It is intended to embody
the spirit and content of the project and be easily recognizable for its
intent and focus.
Rationale This is a brief justification for the project, and a general outline of the
project’s significance.
Content and Focus Areas This section itemizes the varied areas of focus of the project or the
multiple objectives the project seeks to accomplish. The content and
focus areas may well be individual projects in themselves. The
overall project will be framed on these content areas.
Overall Approach This is a recommendation of the approach which should be taken
with the project. It is intended to provide guidance on the process of
project formulation.
Intended Outcomes This is a listing of what the project intends to accomplish.
Implementation Considerations This is a listing of a set of random ideas and considerations which
may assist in implementation.
HRD Strategy for the Tourism Sector : 31 March 2008 126
PROJECT SPECIFICATION SHEET
Project Title:
Promoting Accessibility in Training
Rationale:
Access to training in the sector is inequitable. The geographic distribution of training opportunities varies
considerably, with many areas not having accredited providers. In addition, access is limited to management
training and positions in some sub-sectors, and access is limited to opportunities for practical training and
work experience in the industry.
Content & Focus Areas: Intended Outcomes:
• Rationalizing the training environment and supply stream for human resources in • Equality in opportunity to participate in
tourism training
• Institute a programme of e-learning or e-training to be accessed by public and • Career ladders to management for the
private enterprises
talented at entrance level
• Establishment of a coordinated training network nationally with selected core
providers to ensure representativity of training opportunities in all sectors • More accredited providers in all sub-
• Identification of geographic areas with gaps in training delivery and institute a sectors that are widely dispersed
development programme geographically.
• Adoption of RPL in enterprises in order to enable greater access and enhance
promotability
• Institute and strengthen policy measures and support structures to ensure that
access is not denied through affordability
• Promoting and enforcing standards and competitiveness for trainees in tourism
• Fostering the availability of high quality training materials that are easily accessible
• Development of skills profiles for all occupations in the sector
• Articulation of courses in the sector by levels from basic and generic core
competencies to specialized and managerial skills
• Developing and enforcing standards for training facilities and programmes
• Developing and enforcing standards for learning materials
• Policy intervention to bridge differences in course quality, standards and contact
• Assessment of geographic representativity of economic growth and development
training initiatives in the sector
• Noting gaps in geographic representativity, conduct capacity assessment in
designated areas
• Adopt a mobilization campaign for employers to participate in designated areas
• Assess inter-sectoral potential of current initiatives
• Develop strategy for inter-sectoral engagement
• Put in place a unified management structure for inter-sectoral programmes
• Establish ASGISA training targets in response to GCP focus areas
• Incorporation of ASGISA targets in national targeting strategy for HRD
• Establish a unified structure for the management of ASGISA initiatives in tourism
• Integrate ASGISA initiatives within overall HR supply strategy in the sector
Overall Approach:
The overall approach to this project will be first a comprehensive assessment and then embarking upon
initiatives by geographic areas to improve access where access is unavailable. Among the projects could be
development programmes for accredited providers in areas where providers are unavailable; the
development of a network of training facilities linked through common standards and materials; the provision
of incentives for industry to create access and open their facilities; the sponsorship of management training
programmes for the industry to create access for young and talented employees.
Implementation Considerations:
• Must have the endorsement and cooperation of the industry
• Must be geographically zoned and specific to the needs and market dynamics of the particular areas
• The programme must be centrally coordinated, but managed and run by the selected geographic zones
• Programme must be based on research and there must be targets and success indicators which are
HRD Strategy for the Tourism Sector : 31 March 2008 127
monitored and evaluated periodically
• Must establish set policies and guidelines to manage effectively.
PROJECT SPECIFICATION SHEET
Project Title:
Strengthening Workplace Learning
Rationale:
The key factor here is the lack of "the know" of industry relevant training that is required to ensure adequate
performance of trainees. The promoting of workplace learning is an attempt to strengthen the practical
components of the skills development process. But we cannot assume that all training on the job is effective
workplace learning. In many cases the processes and infrastructure for workplace learning are not
adequate, and, as a result the appropriate skills are not developed.
Content & Focus Areas: Intended Outcomes:
• Implement incentives and a programme for • More industry relevant training
enterprises to include investment in people • More effective methods of practical learning
• Provide incentives to create opportunities for • High practical relevance in training
experiential learning for trainees • Trained individuals who are sufficiently competent
• Establish policy guidelines and protocols for career to take up jobs in the industry
pathing in enterprises to begin with induction
• Establish protocols and policy guidelines for scarce
skills retention management
• Promote incentives for industry to offer internships,
learnerships and various forms of experiential
learning
• Incentives for industry involvement in curriculum
development
• Outsourcing some publicly funded training to
private and business entities
• Enhancing industry participation in policy and
strategic bodies
Overall Approach:
This project could be a package of related interventions. There could be incentives for employers to invest in
training facilities and open these facilities for the use of training institutions; there could be guidelines and
training materials and training in workplace learning; there could be coordinating centres for placing learners
in workplaces for practical experience; among the other possibilities are job shadowing; mentorship and
coaching; the continued promotion of learnerships which are a viable means of training; exchange
programmes between the industry and the education and training sector. The key here is that the
programme is well promoted and properly coordinated.
Implementation Considerations:
• There must be a single vision and a comprehensive and integrated programme with many options available
• Again the programme must be centrally coordinated
• Must capitalize on best practice internationally for exploring options for excellence in this area
• The participation of employers is essential
• The result is that education and training can be shifted to a practice-based approach
HRD Strategy for the Tourism Sector : 31 March 2008 128
• The project must be heavily promoted to secure wide interest and participation
• There must be government incentives to promote participation beyond some of the incentives which
already exist
PROJECT SPECIFICATION SHEET
Project Title:
Local Government Capacity Development in Tourism
Rationale:
Local government are at the coal face in terms of developing and managing tourism assets. Generally, they
do not have the capacity to do so, and most depend on external technical assistance. Even with external
assistance they must be able to manage their assets.
Content & Focus Areas: Intended Outcomes:
• Expanding reach of local government toolkit • Tourism assets more effectively developed and
• Developing guidelines for HRD strategy managed
development and implementation for local • More competence in tourism among local
government government officials
• Developing a tourism management training
programme for relevant local government and
community officials
Overall Approach:
This programme should be constituted on a special management programme for local government officials.
A set of relevant courses should be designed for the purpose and made available as a certified programme
in tourism management for local government officials. Among the topics to be considered are the
assessment and development of tourism assets; tourism policies, plans and strategy; integrated planning for
tourism sector; and facilitating public-private partnerships, among others. The critical consideration here is
that there is one national programme of training.
Implementation Considerations:
• There may be slight variation in the content of training according to markets and geographic area.
However, the core content of training must be the same.
• Training must be accredited and widely endorsed as appropriate, relevant and useful.
HRD Strategy for the Tourism Sector : 31 March 2008 129
• It is critical to select the type of official who should participate. In effect, the participants in the programme
should be those who manage responsibilities in the sector on behalf of local government.
• Must be linked to IDP and LED planning processes.
PROJECT SPECIFICATION SHEET
Project Title:
Leadership Development for the Tourism Sector
Rationale:
There are concerns from industry that, in some cases, the performance of the sector is not properly
managed. There seems to be greater expectations for leadership on behalf of government, especially in
respect to the work of THETA and DEAT. A programme of management development and leadership for
selected government officials is essential if the sector must be truly “government-led”.
Content & Focus Areas: Intended Outcomes:
• Adopt a management development programme in • More visionary and respected leadership
policy leadership and strategic management in the • More gains in the performance and global
sector that is specially targeted to senior officials in competitiveness of the sector
the public sector to include coaching and mentoring • More value added in terms of the contribution of
• Provide incentives and a comprehensive skills development
programme for accelerated progression of talented • A higher degree of service excellence
blacks into management positions • More effective contribution of government
• Develop and implement a sector-specific training programmes
programme for managers in outsourcing to include • More integrated approaches to development
procurement, project management and contracting • Greater strategy alignment throughout the sector
• Establish skills development programming that is
specially targeted to SMMEs
• Provide incentives for training providers who serve
SMMEs
• Adopt a programme for multi-skilling people
particularly for small enterprises
• Provide incentives for training partnerships which
monitor, coach or develop operational skills for staff
in SMMEs
Overall Approach:
The approach here is a wide variety of training engagements for specially targeted public officials whose
roles are critical to the performance of the sector. The first decision to be made is the type of public officials
to be targeted for this programme. The second decision is the nature of the programme and the type of
training options that are available. Options may include mentors and coaches; study tours; policy
management training; training in sector strategy and the management and implementation of strategy; basic
supervision and leadership training; and training in interpersonal and human relations. Exchanges with
industry will also be a useful and viable option.
HRD Strategy for the Tourism Sector : 31 March 2008 130
Implementation Considerations:
• Programmes should be specially targeted programmes and not general or generic training programmes
• The training should be targeted to those who have the capacity and potential for making a difference
• Training should be linked to performance assessment in order to monitor gains in leadership competence
• Process should allow for the transfer of skills and for ongoing self renewal
• Appropriate environments should be created in the workplace to encourage management growth and
development.
PROJECT SPECIFICATION SHEET
Project Title:
Back to Basics Programme
Rationale:
The performance of the sector is compromised by what some call a culture of mediocrity. Basic skills are
lacking throughout the sector. Not only basic skills in numeracy, literacy and communication, but basic skills
in some of the fundamentals of the trade such as service excellence, interpersonal relations and computer
literacy. The result is absence of a sound foundation for human capital formation. That foundation must be
created within the sector if education and training must add value in the future.
Content & Focus Areas: Intended Outcomes:
• Strengthen ABET provision in the tourism sector • Creating a sound educational foundation so that a
• Establishment of a common format and structure skills base can be built
for induction in various aspects of tourism • Growth in service excellence and more alertness
• Implement a national training programme on core among employees
competencies for the tourism sector to be adopted • More employees who are prepared to move into
by training entities and tourism enterprises – management
communication, maths literacy, service excellence • More labour stability as people move into careers in
– and used as bridging courses for tourism training the sector
• Structure a basic supervision course targeted at
supervisors in the sector
• Ensure the availability of relevant and basic IT
courses for workers in the sector
Overall Approach:
The overall approach here is publicly supported and widely available education programmes in the sector in
the basics. Here, ABET training in the sector could be better promoted and more widespread. Incentives
could even be provided for ABET. But in addition to this, free basic courses should be provided to build
competence in areas such as service excellence, communication and tourism awareness. These courses
should have a set national curriculum and standards and well prepared materials, and they should be made
available at a variety of institutions and locations throughout the country so as to ensure access. Private
employers could also be mobilized to participate in the programme.
Implementation Considerations:
• Must be a widely promoted programme so as to maximize access
• Course materials should be thorough and should be well designed to be pitched at multiple levels
HRD Strategy for the Tourism Sector : 31 March 2008 131
• Trainers in these materials should be well prepared and should be placed on a national register
• Some of these courses could be made available through ABET programmes, community centres and
private training institutions
• The key here is that these courses are subsidized
PROJECT SPECIFICATION SHEET
Project Title:
Knowledge and Information Management
Rationale:
The sector is plagued by the absence of high quality information for decision making. While research and
data exists in the field, there is no central point for processing data, no legitimate means to assure quality
and no discipline and thoroughness in the manner in which data is manipulated and processed for making
decisions. Many critical decisions are therefore made based upon data that is inadequate.
There is no reliable and comprehensive data on HRD in the tourism sector. Available data represents only a
small number of establishments, and data is not properly processed and manipulated for decision making.
Skills development in the sector is therefore compromised through the absence of a comprehensive body of
data related to education.
Content & Focus Areas: Intended Outcomes:
• Comprehensive assessment of human resource supply for the sector by sub- • More information-based
sector and GCP focus areas (public and private) decision making
• Comprehensive assessment of human resource demand by sub-sector and • Greater effectiveness and
GCP focus areas efficiency in the management
• Comprehensive assessment of HR gaps by sub-sector and by GCP focus areas of the sector
• Adopt programmes to address the structural anomalies of HR allocation in the • More effective management
sector (seasonality, over-supply in geographic areas; etc.)
of HR supply and demand
• Creating dependable supply streams of talent for the tourism sector
• Education and training
• Information clearing house or research centre for tourism and skills development
research and information management database for the tourism
• Ongoing tracer studies in learners sector
• Regular publication of critical information to inform stakeholders in sector of • Customised data and reports
findings and developments in the sector on the status of skills supply
• Comprehensive baseline information on service providers in tourism and demand on labour
• Comprehensive monitoring of training standards compliance market dynamics
• Ongoing publication of best practice research
• Comprehensive tourism research and statistics with implications for policy and
practice (including training)
• Establish framework and system for monitoring of compliance with strategic
initiatives
• Establish plan structure and guidelines for promoting and monitoring the impact
of training on service delivery
• Convene annual conferences to report on status and progress with HRD in the
sector in line with specified targets
• Compile national registers to maintain and manage quality and overall capacity
development in HRD (trainers, programmes by institutions, guides)
• Registry of available courses by institution, province and quality designation
• Registry of learnership sites in the sector
• Performance statistics in respect to institutional output and success in national
assessment and examinations
Overall Approach:
HRD Strategy for the Tourism Sector : 31 March 2008 132
The overall approach here is the establishment of a central point for tourism planning information for
business development and for education and training. This will essentially be a research centre and clearing
house on tourism information. The roles and functions of this centre could be thoroughly defined to include:
research, training, service in terms of consultancies, technical support seminars and strategy development
and assessment.
Implementation Considerations:
• It is essential that this is located in one organizational entity. While they may be satellite centres and varied
contributors, the function should be undertaken by one centre as a government sponsored endeavour.
• Information produced by the centre should be vetted to ensure credibility.
• The centre could be a clearing house for best practice and innovative developments internationally.
• The centre may have sub-sectoral specializations and provide both leadership and stimulus to the field.
PROJECT SPECIFICATION SHEET
Project Title:
Plan and Strategy Integration
Rationale:
Although governmental structures are in place to coordinate plans and strategies, the roles and
responsibilities for coordination are not clear. As a result, there are gaps and shortfalls in coordination which
result in fragmentation and adherence to multiple and conflicting priorities.
Content & Focus Areas: Intended Outcomes:
• Assess tourism implications of each element of DEAT’s mandate • More collaboration between
• Develop an integrative tourism operational plan which embodies spheres of government in meeting
considerations related to environment business and strategic priorities in
• Isolate and effect collaboration on joint HRD initiatives HRD
• HRD targeting strategy to add value to critical business priorities
• Develop guidelines for assessing and outlining the HRD implications of
strategic initiatives
• Assess human resource gaps and needs in respect to strategic priorities
• Adopt and nurture an HRD targeting support function at DEAT
• Assess response capacity for HRD in relation to strategic targets and
according to levels of delivery where HR is used
• Assess the training implications of alternative tourism growth paths
• Consolidate HRD policies into one operational and strategic framework
for the sector
• Develop and adopt a system to ensure policy articulation between
spheres of government so that the national and local strategic priorities
are met
• Use current integrated structures to lead and manage HRD policy
implementation across spheres of government
• Develop initiatives and incentives to align private sector priorities with the
national agenda for HRD
• Preparation of an implementation guide to be used by stakeholders in
implementing the national HRD strategy
• Guidance and promotion of HRD strategies for boards and associations in
line with national strategy
• The preparation of sub-sector level HRD strategies in line with national
strategy
• Encouragement of enterprise level HRD strategies through technical
assistance and incentives
• Preparation of guidelines for aligning plans and strategies
• Detailing of HRD strategic obligations down to community level
• Detailing of HRD strategic obligations within an integrated framework
• Put structures in place for the preparation of an annual report on
implementation progress nationally
HRD Strategy for the Tourism Sector : 31 March 2008 133
Overall Approach:
The overall approach here will be that of policy leadership and collaborative management. National
guidelines must be prepared for the proper integration and coordination of strategic initiatives so that
expectations are clear and anticipated outcomes well specified. In addition, the strategic planning and
accountability frameworks of government should be applied in ensuring this integration. A variety of sub-
programmes could be considered. These are itemized in the content and focus section above.
Implementation Considerations:
• The first requirement here is that all are encouraged to have plans and strategies in place
• These could be annually defined areas of strategic focus and emphasis which will be promoted, facilitated
and supported each year.
• There is need for training in strategic planning and management.
PROJECT SPECIFICATION SHEET
Project Title:
Strengthening Structures for HRD Management
Rationale:
HRD in the sector is currently fragmented and inefficient as a result of uncoordinated governance structures
and planning and delivery mechanisms which do effectively link national practices with the initiative of
communities.
Except for the national HRD strategy for the public service, the NSDS and the national HRD strategy, there is
no national framework for HRD in the tourism sector. The SSP of THETA does not provide an adequate plan
or framework, and other initiatives of the various government departments, although worthwhile, do not
cohere into a unified programme. There is need therefore for a coherent policy framework for HRD.
Content & Focus Areas: Intended Outcomes:
• Assess the incidence in DEAT of HRD assignments related • More coordinated and integrated efforts
to the sector to build skills for the sector
• Develop structures and policies for internal coordination on • Greater consistency and follow-through
HRD matters related to the sector in the administrative priorities.
• Reflect inter-unit HRD initiatives in operational and business • A coherent policy framework for HRD in
plans the sector within which all HRD efforts
• Assess administrative and performance blockages to sector can be embodied.
performance and replace with uncomplicated admin systems • A more streamlined and focussed
and procedures. approach to HRD thus providing more
• Clarifying, strengthening and aligning governance roles in effective leadership to the sector
HRD • Greater programmatic consistency
• Outlining roles for the management of HRD down to
communities with associated policy guidelines for compliance
• Provide incentives for the consolidating and streamlining of
private bodies involved in tourism.
• Alignment and integration of programmes and initiatives of all
stakeholders (public & private)
• Strengthen the authority and impact of the HRD coordination
forum
• Formalise and strengthen the inter-sector forum on skills
development for the tourism sector
• Establish objectives and targets for HRD for the sector as a
whole (public private; national local)
Overall Approach:
HRD Strategy for the Tourism Sector : 31 March 2008 134
Strengthening structures for HRD management must begin within DEAT, and an overall structure for the
sector must be managed through DEAT. While THETA plays a key role, the body’s credibility and reach in
the field may not allow it to coordinate HRD in the sector. The structures will be strengthened through policy
guidelines, the establishment of administrative linkages through to communities through partnerships with
industry and through the effective management of strategic HRD priorities. The HRD strategy task team will
assist immeasurably.
Implementation Considerations:
• There must be a thorough reassessment of existing establishments for HRD within the government sector.
In this regard, DEAT must rationalize its internal HRD structures.
• Structures must be strengthened in all spheres of government, and these structures should be linked and
should work in synergy.
• Due attention must be given to the role of private bodies and associations in the overall structure for HRD
management.
PROJECT SPECIFICATION SHEET
Project Title:
Coordination Unit for Sector Transformation
Rationale:
Transformation of the sector is slow in every respect. While some transformation has taken place, still many
areas remain untransformed. In spite of the many programmes which are in place to aid transformation,
change in the sector is slow. Part of the problem is that the initiatives undertaken by government are
sometimes not sufficiently wide in scope to create the momentum necessary, and sometimes these
programmes are hijacked and used in a manner which does not have transformation results in the end. In
spite of the efforts, therefore, prospects for change remain daunting. Gains in transformation are not
properly tracked and the use of resources is sometimes not monitored to ensure they accrue the desired
benefits.
Content & Focus Areas: Intended Outcomes:
• Create an organizational focal point for all • More visible gains in the realization of the
transformation initiatives transformation agenda for the sector
• Prepare a comprehensive transformation • Greater programme coordination and delivery
acceleration strategy that is inter-departmental efficiency
and inter-sectional
• Establish a monitoring and evaluation structure for
tracking progress in transformation
• Consolidate incentives for accelerating
transformation in private enterprises
Overall Approach:
There is a rarity of worthwhile transformation initiatives which are intended to benefit the sector. These
initiatives are not properly coordinated and streamlined, and, as a result the full impact of transformation
HRD Strategy for the Tourism Sector : 31 March 2008 135
efforts are not fully realised. These initiatives must complement each other in order to realise their full effect.
One way of ensuring that these initiatives complement each other is through the development of a
transformation coordination unit for the sector which puts in place an overall strategy on transformation in the
sector and manages the strategy through its collaboration with special projects and initiatives.
Implementation Considerations:
• The unit should have coordination oversight to plan, track and report. The unit should not run these
programmes and initiatives.
• The unit could take responsibility for awareness promotion and training.
• The unit should be a small unit, but with senior staff and overarching authority to act
• The unit should be positioned so that it maintains good relations and support from industry.
PROJECT SPECIFICATION SHEET
Project Title:
Advancing a Code of Practice in the Sector
Rationale:
Cohesiveness in the sector is established on the basis of a common set of beliefs and principles to which all
in the sector agree to abide. The fragmentation in the sector cannot be fully remedied through policies,
structures and funding incentives. There must be something that is much more fundamental. This project
suggests the advancement of a code of practice which specifies the principles by which all will abide. While
this exists for some of the private associations, they do not exist for the sector as a whole.
Content & Focus Areas: Intended Outcomes:
• Facilitating and monitoring compliance to DoL • Coherence in action
sectoral determination 14 • A sound basis for quality management
• Developing and adopting skills retention policy,
strategy and programme for scarce and critical
skills
• Effective management of employee health and
wellness
• Promoting move effective career planning and
talent management in enterprises
• Constitution and support of an HRM “best
practices” forum for the sector
HRD Strategy for the Tourism Sector : 31 March 2008 136
Overall Approach:
The overall approach here is one of promotion and advocacy. The codes will have to be developed based
upon principles upon which all can agree. The implications of these codes for the actions and activities of
stakeholders should be clear. There must be some insignia associated with the endorsement and
adherence to this code of practice. Extensive training will be necessary.
Implementation Considerations:
• Code should not conflict with but should embody other codes of practice in the field
• Codes should not be too extensive so that it may become cumbersome
• Codes should be widely promoted and publicized
• Educational institutions should advance these codes in their curriculum
PROJECT SPECIFICATION SHEET
Project Title:
Building a Tourism Culture
Rationale:
One of the complaints in the sector is the absence of service excellence. Even beyond this, there is lack of a
culture in tourism in terms of public knowledge, attitude, interests and understanding of responsibilities for
promoting excellence in the sector.
Growing a tourism culture is a long term endeavour and it is largely an advocacy programme. It is about
setting the right public values and attitudes in place to embrace tourism.
Content & Focus Areas: Intended Outcomes:
• Public training and tourism drive on “Tourism and • Steering service excellence
You” • More public knowledge about tourism
• Developing and marketing a structured and multi- • Higher participation of the community in the
level training programme in tourism awareness to success of tourism
promote local and national tourism knowledge
• Promote experiential learning in all schools to
introduce learners to the tourism sector
• Implement a training programme on the roles and
responsibilities of stakeholders in tourism
• Develop and promote a national service excellence
training programme
• Develop and promote a national training
programme on community participation for tourism
enterprises
• Expand the reach of tourism ambassador
programme
• Ensure training priorities are in line with destination,
positioning and branding
HRD Strategy for the Tourism Sector : 31 March 2008 137
Overall Approach:
The approach here is multi-faceted, but it is fundamentally a public communication programme of promotion
and advocacy. While some aspects of the programme will be brochures, ads, information sheets, slogans
and posters; another dimension of the programme will be public education through training that is available
through public institutions and community centres, libraries and other facilities. The overall approach here is
to educate the public and reinforce the education of those who work in the sector.
Implementation Considerations:
• There must be a role for parents, families and faith-based organizations
• While the programme may have a research body of core content, it should also have some level of
geographic targeting so that it is sustainable to the cultural tone of particular jurisdictions
• A culture of tourism is related to a culture of work in tourism
PROJECT SPECIFICATION SHEET
Project Title:
An HRD Charter for the Sector
Rationale:
Here again, the objective is establishing coherence through the subscription to a core set of principles of
action which can guide practice in the field. Commitment and approaches to HRD vary considerably among
stakeholders. As a result, each stakeholder tends to act in a manner which advances their immediate
priorities and interests. Evens o, there is a common framework of expectation about how the business of
HRD should be conducted.
Content & Focus Areas: Intended Outcomes:
• A set of principles to which all are willing to abide • Coherence in the field in respect to HRD
• Guidelines in relation to these principles • Uniformity of standards and quality
• Training in relation to these principles • Professionalism in practice among practitioners
• A public relations programme in relation to these
principles
Overall Approach:
Here, a charter will be constituted of a set of rules or general agreements regarding mutual expectations.
The charter may include the following:
1. HRD delivery through plans and strategies
2. Adherence to sector priorities and strategies
3. Demand-led training interventions
4. Training for careers and promotability
HRD Strategy for the Tourism Sector : 31 March 2008 138
5. Accredited courseware and materials
6. Quality in training facilities
7. Industry relevance of training
8. Advancing public awareness in tourism
Implementation Considerations:
• Principles must be properly endorsed by stakeholders
• Principles and codes must have practical relevance and meaning which must be understood
• HRD charter should be promoted widely in the industry and adhered to by public and private sector
organizations
PROJECT SPECIFICATION SHEET
Project Title:
Promoting Tourism Education
Rationale:
The supply stream for tourism talent is weak in many of the areas where skills are needed. While there is an
over supply in some areas there are skills deficit in many other areas. The sector competes with other
sectors for the talented youth produced by the education system. The intent here is to build interest in
tourism as a career or a field of study.
Content & Focus Areas: Intended Outcomes:
• Tourism education in high schools • More talented youth entering the tourism industry
• Career guidance interventions in tourism • Wider base of skills for human capital formation
• Tourist sector mentorship programmes • Filling gaps in scarce and critical skills
• Extension of special programmes such as the
tourism ambassador programme
Overall Approach:
The overall approach here, again, is that of public communication through advocacy and promotion. The
HRD Strategy for the Tourism Sector : 31 March 2008 139
emphasis is on building interest in tourism as a field of study and cultivating a culture of pride and service
excellence in those who whish to enter the field.
Implementation Considerations:
• Here there should be a focus on making more opportunities available so that more people can be exposed
to the field
• The curriculum should be well established, and should be common across jurisdictions
• Teachers should be well prepared to teach and administer the curriculum
PROJECT SPECIFICATION SHEET
Project Title:
An Employment Charter for the Sector
Rationale:
The notion of an employment charter for the sector is based on the need for all to engage in HRM practices
that are desirable, which do not undermine the level of satisfaction people have working in the industry. The
employment charter seeks to create stability in the labour pool, and enlist loyalty and commitment to the
industry and it its employers.
Content & Focus Areas: Intended Outcomes:
• Compensation and compensation management • Labour stability in the sector
• Working conditions • Creating a sound foundation for human capital
• Support for health, security and safety formation
• Guidelines and training on the employment charter • Greater uniformity in positive practices
• More satisfied workers, more satisfied customers
Overall Approach:
The approach here is to develop a set of principles or agreements to which all in the field can abide. The
charter must be properly marketed, and there should be some recognition and incentives for those who
abide by the charter.
HRD Strategy for the Tourism Sector : 31 March 2008 140
Implementation Considerations:
• Cannot be too extensive so that it becomes cumbersome to manage and to adhere to
• There must be full industry endorsement of the provisions of the charter
• Provisions must be consistent with existing laws and regulations
• Provisions should not give some competitive advantage to the detriment of others
PROJECT SPECIFICATION SHEET
Project Title:
A Stakeholder Engagement Programme
Rationale:
This programme seeks to bridge the gaps which sometimes exist between government and industry, and
between employers and training institutions. This programme is another effort in establishing coherence
where each party can have more opportunities to make a contribution.
Content & Focus Areas: Intended Outcomes:
• Awareness programme on government initiatives • Stakeholder awareness
• Participation of industry representatives in • Coherence in the industry
education and training initiatives • Greater sharing of wisdom, talent and resources
• Mentorship programmes • Greater solidarity on critical issues and blockages
• Sharing resources and facilities in the field
Overall Approach:
HRD Strategy for the Tourism Sector : 31 March 2008 141
This will be a comprehensive programme which is intended to stimulate all areas of stakeholder
engagement. It is a programme which is intended to accrue benefits to all other programmes in the package
of HRD projects recommended in the strategy.
Implementation Considerations:
• Engagement must be properly planned and orchestrated so as to minimize confusion and to ensure that
value is added through intended engagements
• Must ensure geographic and sub-sectoral representativity
• Engagement must take place within the framework of the law
HRD Strategy for the Tourism Sector : 31 March 2008 142
10. PROMOTING SUCCESSFUL IMPLEMENTATION
9.1 Introduction and Purpose
Implementation is the ultimate challenge in public policy. Policies, like plans, programmes
and strategies, are not automatically implemented. Implementers must design and devise
ways to manage all the challenges which arise in brining policies into effect. In the tourisms
sector, implementation of the HRD strategy could be confronted with a variety of practical
challenges which can derail its success.
The sector is complex and diverse with entrenched interests and set ways of undertaking
its business. Centres of influence are well established, a framework of policy expectations
have become firmly set, and established routines exist for conducting a wide variety of
tasks that are essential to the performance of the sector. In essence, a basic infrastructure
for delivery is in place and most of it works well. But success of the HRD strategy will
require a review of some of the established structures, policies and ways of conducting the
sector’s business. This review must clear blockages and create opportunities for renewal.
Fragmentation must be overcome; there must be greater alignment between spheres of
government; there must be more representativity in training opportunities; and among
others, there must be closer and more information-based management of skills
development in the sector. Successful implementation will depend on five critical areas of
action. These are itemized and discussed briefly below.
9.2 Communication and Advocacy
The point of departure for implementing the strategy must be communication within the
sector in order to promote awareness, select input and seek the endorsement of
stakeholders. The essential focus here is whether the strategy meets the needs of the
sector, whether it’s viable in terms of resolving some of the issues faced by the sector and
whether it is an instrument around which all can mobilize for taking action. The process of
communication and advocacy must be a participative process whose stakeholders will be
allowed to shape and drive the process of implementation.
9.3 Stakeholder Participation and Engagement
The base of stakeholder participants should be wide enough so as to maximize input and
stakeholder representativity. There should be geographic representation, as well as
representation from all sectors of the industry and all the related government agencies
(departments, boards, associations, etc.). The roles and obligations of stakeholders in the
process of implementation must be carefully negotiated and properly managed.
Stakeholder engagement is essentially a process of creating an environment that will
support and facilitate implementation.
9.4 Committed Leadership
The process of strategy implementation must be led through government, but it must be
supported and driven by all stakeholders in the sector. Because the path may be strewn
HRD Strategy for the Tourism Sector : 31 March 2008 143
with challenges and obstacles to be overcome, much guidance and committed leadership is
required. Avenues for enabling success must be created through patience, ingenuity and
persistence. Leadership at all levels must be committed.
9.5 Programming Support
Among the factors which will promote success is the level of support and guidance
provided to the sector in implementing the provisions of the strategy. The sector is large
and diverse. This support must be carefully planned and systematically orchestrated so that
services and opportunities can reach all in the sector.
9.6 Consistent Monitoring, Evaluation and Reporting
Progress in attaining the provisions of the strategy must be properly tracked and monitored,
over time. The systems and processes for monitoring and evaluation must be set in place,
and there must be accountability for the obligation undertaken by the various parties in the
process of implementation.
These are only a few of the most basic requirements for implementation success. In
addition to these there must be an overall implementation plan and guide which can be
used in rolling out the strategy.
The implementation plan and guide will accompany the HRD strategy upon completion.
HRD Strategy for the Tourism Sector : 31 March 2008 144
APPENDIX A
LIST OF DOCUMENTS REVIEWED
1. Tourism & Sports Skills Audit : 30 June 2007
2. The Higher Education Qualifications Framework Matrix Revised (No 928 Gazetted 5 October
2007)
3. Buffalo City Municipality Tourism Master Plan Phase 9, 10 and 12 : Skills Development
Framework and Enterprise Development Support Programme
4. Domestic Tourism Growth Strategy 2004 to 2007
5. The Higher Education Qualifications Framework : Higher Education Act (Act No 101 of 1997)
(Gazetted 5 October 2007)
6. National Qualifications Framework Impact Study Report 2005
7. Basic Conditions of Employment Act 75 of 1997 : Sectoral Determination 14 : Hospitality Sector
South Africa
8. Customized Sector Programme : Tourism Sector Strategy
9. Evaluation Report on the Impact of the Tiered Support Programmes on Tourism Small Business
Development in the Western Cape
10. A Framework/Model to Benchmark Tourism GDP in South Africa
11. THETA Sector Skills Plan 31 August 2007
12. Annual Tourism Conference 19-20 October 2006 : Conference Briefing Presentation,
Conference Paper and Conference Report
13. An HR Development Strategy for Irish Tourism 2005-2010
14. National Business Initiative Research Report 30 June 2007
15. South African Tourism : Tourism Growth Strategy 2008-2010
16. White Paper : Development and Promotion of Tourism in South Africa Jun 1996
17. Strategic Plan : Environment & Tourism 01 April 2005 to 31 March 2010
HRD Strategy for the Tourism Sector : 31 March 2008 145
APPENDIX B
LIST OF PARTICIPANTS INTERVIEWED
NAME & SURNAME ORGANIZATION
DEAT Officials DEAT
Ms Nthabiseng Monyapelo & Mr. Motlatsi Tourism Enterprise Programme (TEP)
Mr. Thabo Mahlangu Organized Labour Rep – SACCAWU / THETA Board
Member
Ms Jacqui McKnight Chairperson of the THETA Tourism & Travel Chamber
Committee
Ms Nikki Akannbi FEDHASA
Ms Simone Lobetti Hospitality Chamber Committee Member
Mr. William Chuene THETA
Prof Jane Spowart University of Johannesburg (UJ) & SA Association for
Hotel Schools (SAAHS)
Ms Jacqui Obando Tourism Business Council SA (TBCSA)
Ms Darryn von Maltitz /Ms Makano/ Ms Nkileng JIPSA Secretariat (National Business Initiative – NBI)
THETA Board Members (Caleb Mr. Mabaso & THETA Offices
Others)
Mr. Sadha Naidoo National Tourism Training Providers Forum (NTTPF)
Mr Dimitri Tassiopoulos Chairperson of Tourism Educators of SA (TESA) /
THETA SGB & Chamber Committee Member
Mr. Mike Tatalias South African Tourism Service Association (SATSA)
SAT
SANPARKS
Ms Skhumsa Mancotywa Biodiversity & Conservation Branch (DEAT)
Mr. Edward Moeketsi Intergovernmental Planning & Co-ordination (DEAT)
Ms Nomfundiso Giqwa SRPP Chief Directorate, DEAT
Mr. Blessing Manale
SACI
Mr. Helder Perreira Southern Sun
Mr. Brett Dungan FEDHASA National
Mr. Clifford Ross City Lodge Group
Mr. Tigler Protea Hotels Group
HRD Strategy for the Tourism Sector : 31 March 2008 146
APPENDIX C
INDUSTRIAL COMPONENTS OF THE TOURISM SUB-SECTORS
INDUSTRIAL COMPONENTS OF TOURISM SUB-SECTORS
SECTOR
SUB-SECTOR COMPONENTS OF INDUSTRIAL CLASSIFICATION INDUSTRY
CLASSIFICATION
(SIC) CODES
Hotels, motels, boatels and inns not registered 64101
Hotels, motels, boatels and inns registered 64104
Caravan parks and camping sites 64102
Guesthouses and guest farms 64103
Bed and Breakfast 64105
Restaurant or tearoom with liquor licence 64201
Restaurant or tearoom with liquor licence 64202
Take-away counters, take-away restaurants, fast food 64203
establishments 64205
64206
Hospitality Caterers (including private clinics) 64204
Other catering services n.e.c. including pubs, taverns, night
64207
clubs
Timesharing (resorts and parks, self-catering
84111
apartments/cottages)
Bioscope cafes 88994
Control of undertaking that sells liquor to the public 91308
Licensing and control of undertakings that sell food to the
9130A
public
Operation and management of convention centres 96195
Manage a operation of game lodges 64106
Tour operators (inbound and outbound tour operators) 71214
Safaris and sightseeing trip operators 71223
Inbound international flights 73002
Travel and Travel agency and related activities 74140
Tourism Renting of land transport equipment including car rentals 85111
Tourist information centres 96336
Tourism authorities including but not limited to tourism
99048
marketing, tourist information centres, publicity associations
Car hire 99028
Conservation Museum activities and preservation of historical sites and
96320
and Tourism buildings
Provision for management and operation of monuments,
Guiding historical sites and buildings
96322
Management and operation of museum, cultural and heritage
96323
activities
Game parks, reserves including but not limited to wildlife,
96333
parks, zoological or animal parks and botanical gardens
Activities of conservation bodies 96334
Wildlife conservation including wildlife, parks, game reserves,
96335
zoological establishments, botanical gardens
HRD Strategy for the Tourism Sector : 31 March 2008 147
Hunting and trapping including related services 11520
Guides including tourist river, mountain etc 99049
Source: Table Reconstructed from Tourism and Sports Skills Audit Final Report 30 June 2007
HRD Strategy for the Tourism Sector : 31 March 2008 148
