SPATIUM International Review UDC 338.48:502.131.1(497.11); No. 30, December 2013, pp. 47-53 Professional paper DOI: 10.2298/SPAT1330047O

TOURISM DEVELOPMENT IN – – ON THE WAY TO SUSTAINABILITY AND EUROPEAN INTEGRATION

Violeta Orlović-Lovren1, University of , Faculty of Philosophy, Department for Andragogy, Belgrade, Serbia Tijana Crnčević, Institute of Architecture and Urban & Spatial Planning of Serbia, Belgrade, Serbia Saša Milijić, Institute of Architecture and Urban & Spatial Planning of Serbia, Belgrade, Serbia

The aim of the paper is to contribute to improvement of policy and practice in Serbia towards defining and implementing sustainability principles and meeting European integration requirements. It encompasses short review of international implications on Serbian tourism policy and legislation. Current policy and its sustainability are analyzed using two indicators: application of integrated (cross sector) and local community approach, with particular focus on tourism, environmental and planning documents. There is general orientation towards sustainability and involvement of local community into the planning and implementation of projects in the field. Precisely defined mechanisms for public participation and integrated approach, first of all mainstreaming of environmental issues into tourism strategic document, are preconditions for reaching country’s sustainability goals and EU integration orientation. Points that should be improved are suggested and the need for mutual cooperation and capacity development of stakeholders at all levels, including further international support, strongly advocated. Key words: Tourism policy; environment; sustainability; European integration.

people travelling abroad, owning to the policy and legislation support, as well as 1 INTRODUCTION introduction of visa–free travel throughout EU international assistance, mainly through Natural values, cultural heritage and hospitality countries for Serbian citizens (since 2010). projects and consulting that resulted in strategic documents and recommendations for of people are among major appeals recognized At the national level, there is a Department for further growth. by the strategic documents in Serbia and Tourism within the Ministry of Finance and official statements of policy makers in the field , the National Tourism of tourism. Organization of Serbia, dealing with promotion IMPLICATIONS OF SUSTAINABILITY For the , tourism is one and market research of tourism, and National PRINCIPLES ON SERBIAN TOURISM of the priority areas in further socioeconomic Corporation for Tourism Development POLICY supporting implementation of the Tourism development and also important for its reform Being signatory of numerous global and EU Strategy and tourism development. At the local within the process of accession. At the same conventions and agreements, Serbia has taken level, there are municipalities and, in some time, the progress made towards EU responsibility for their implementation in cases, local tourist organizations, mainly integration during the last years provides accordance with sustainability principles funded by local authorities. The tourism important conditions and requirements for embedded in each of the documents. Starting planning and development, including human tourism development. In 2008, Serbia signed from the globally accepted Millennium capacities and infrastructure, is under way the 'Stabilization and Association Agreement' Development Goals, through the Convention on and in 2012, its candidate status was mainly at the national level. approved. Number of foreign tourists is Despite the challenges faced inside the increasing in Serbia, as well as the number of This paper is a part of research conducted through the country, as well as the crisis and global Scientific project “Sustainable Spatial Development of recession influencing tourism market in Serbia Region in Serbia” (TR 36036), financed by the Ministry of Education and Science of the Republic of Serbia 1Čika Ljubina 18-20, 11000 Beograd, Serbia as elsewhere since 2008, the efforts have been from 2011 to 2014. [email protected] made in developing this sector, providing the

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Biological Diversity with its Guidelines on crucial preconditions for sustainable tourism. Institutions (MFIs): Council of Europe Biodiversity and Tourism developed in 2004, Development Bank (CEB), European Bank for Useful guidelines for developing plans and Serbian policy and approach in developing Reconstruction and Development (EBRD), projects in the field of sustainable tourism can sustainable tourism is under unavoidable European Investment Bank (EIB), Nordic also be found in documents describing policy of implications of the broad set of documents, Environment Finance Corporation (NEFCO) and European donors and banks, with funds available adopted at the national level over the past few Nordic Investment Bank (NIB). It is founded on for Serbian governmental institutions, private and years. Receiving the status of EU candidate their commitment to promote and ensure non-governmental organizations initiating country, Serbia is to comply with principles and sustainable development and environmental infrastructure and development projects. Among directions developed by the EU over the past few principles, practices and standards associated the others, there is a possibility for Member States years. The European Union Strategy for with financing the projects. and all Regions to finance tourism projects Sustainable Development (EU SDS), developed through the European Regional Development For projects located in the Member States of by the European Council, adopted in 2001 and Fund, the Cohesion funds (the European Regional the EU, the European Economic Area countries, revised in 2006 and 2009 (EU SDS, 2012) is an Development Fund and the European Social the EU Acceding, Accession, Candidate and umbrella document. Specific guidelines for the Fund), the European Agricultural Fund for Rural potential Candidate Countries, the EU approach, policy development and practice towards Development, the European Fisheries Fund, the which is defined in the EC Treaty and the relevant sustainability and EU integration are suggested 7th EC Framework Program for Research, secondary legislation is the logical and mandatory by the most relevant documents for sustainable Technological Development and Demonstration reference. The projects in this region should also tourism developed recently at the European activities ( the key priority on climate change comply with any obligation and standards level, such as the Declaration on Ecotourism includes impacts on tourism) – and in the upheld in relevant Multilateral Environmental (2002), Declaration on Climate Change and ‘Leonardo da Vinci’ Program. Agreements (Multilateral agreement of Tourism (Davos Declaration), as well as the European investment banks, 2013). Agenda for a Sustainable and Competitive Since the Instrument for Pre-accession European Tourism (2007). Assistance (IPA) is one of the main funding Since one of them, the European Bank for mechanisms of the EU for the accession Reconstruction and Development (EBRD) is Some of the common messages embedded in countries, it is important to consider its present in Serbia providing funds for projects the above mentioned documents are very Strategic Coherence Framework (SCF) in different fields, including tourism, it is of important for developing the approach and document, setting Serbia’s economic, social particular interest for policy makers and strategic foundation for sustainable tourism in and environmental development goals for the implementers to understand, respect and Serbia. As it was stated ‘sustainable tourism is EU programming period of 2012-2013. It comply with the principles they incorporate positive approach intended to reduce the emphasizes the importance of the environment into its Social and Environmental Policy - tensions and frictions created by the complex in tourism development in terms of protection ranking the financing of sustainable interactions between the tourism industry, of natural values, but also in terms of development projects among the highest visitors, the environment and the communities improving the waste and water management priorities. The Bank has defined a set of specific which are host to holidaymakers...i.e. it is an and environmental services crucial for “both Performance Requirements (“PRs”) that clients approach which involves working for the long- economic development and societal well- are expected to meet, covering key areas of term viability and quality of both natural and being, and their sustainability” (SCF - Third environmental and social impacts and issues. human resources. It is not antigrowth, but it Draft, Government of Serbia, 2011). Under each of the PRs, there are objectives, acknowledges that there are limits to growth.’ scope and specific steps and activities (Bramwell & Lane, 1993:2). Therefore, taking Implementing the policy and projects in Serbia described in order to provide clear guidance for into consideration that ‘tourism will today and in the future needs a significant project holders and stakeholders. Though all the grow…main task is not to limit growth but to support, both technical and financial, to principles are important for achieving manage growth in a way that is appropriate to tourism, as well as to other fields of sustainability, a particular attention in the Policy, the tourists, the destination environment and development. Therefore, it is very important to and from the point of view of this analysis, is the host population’ (Liu, 2003:472). consider the European Principles for the given to the PR 1 and PR 10 and their mutual Environment (EPE) as an initiative of the five In achieving both competitive and sustainable interrelationship as presented in Table 1. signatory European-based Multilateral Financing tourism it is necessary to apply mechanisms and principles based on a “quadruple bottom Table 1. Mutual interrelationship between the Performance Requirements (EBRD,2013) line” – integration of three pillars of sustainability and emerging climate change Environmental and Social Appraisal and Information Disclosure and Stakeholder Engagement issue, promoted by the Davos Declaration Management (PR 1) (PR 10) (Davos Declaration – Climate Change and Tourism: Responding to Global Challenges, To identify and assess environmental and social To identify people or communities that are or could 2012). It requires integrated approach, impacts and issues, both adverse and beneficial, be affected by the project, as well as other interested collaboration and solidarity at international, associated with the project. parties. national and local levels. The development of To adopt measures to avoid, or where avoidance is To ensure that such stakeholders are appropriately not possible, minimize, mitigate, or engaged on environmental and social issues that sustainable tourist destination is interlinked offset/compensate for adverse impacts on workers, could potentially affect them through a process of with natural and social environment, as well as affected communities, and the environment. information disclosure and meaningful consultation. with wellbeing for all. Raising awareness, To identify and, where feasible, adopt opportunities To maintain a constructive relationship with education, participation, mutual policy to improve environmental and social performance. stakeholders on an ongoing basis through integration and financial support, as well as To promote improved environmental and social meaningful engagement during the project consumers’ responsibility, are some of the performance through a dynamic process of implementation. performance monitoring and evaluation.

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Based on findings of the environmental and INTEGRATED APPROACH IN general orientation of the country to direct social appraisal and on the results of SERBIAN TOURISM RELATED development towards the balance between consultations with affected stakeholders, the POLICY three “pillars” of sustainable development. It is clients, it may be required to develop and also obvious in priorities set up by the implement a program for mitigation and By “integrated approach” in this paper we Document, promoting European membership performance improvement measures and consider a cross sector approach and in the first place. The importance of integrating actions that address the identified social and integration of issues and goals of other sectors the measures and goals of the policies of environmental issues, impacts and into tourism policy and legislation. Having in different sectors has been generally opportunities in the form of an Environmental mind close link between tourism and the emphasized, and in particular regarding those and Social Action Plan (ESAP). environment, first of all in terms of sustainable concerning the environmental protection and use of resources and protection of biodiversity, sustainable use of natural resources. The Other EU funding institutions, including the EIB our analysis will mainly focus on relationship Strategy identifies threats of “unsustainable” and the Commission itself, the World Bank, between environmental and tourism strategies tourism development to the protection of USAID and other donors active in Serbia, have and legislation in Serbia. natural resources, but also recognizes that adopted similar policies promoting social cor- there are solid institutional capacities for porate responsibility and/or sustainable deve- Environmental policy and legislation sustainable tourism development in Serbia. lopment principles/requirements from clients. Under the influences of European and The National Biodiversity Strategy for the Besides direct investments in business field or international trends and requirements, Serbia period of 2011-2018 (Ministry of environment budget funding, there is a potential opportunity to joined a majority of relevant conventions and and spatial planning, 2011) recognizes secure finances for sustainable tourism through multilateral agreements in the field of the necessity of integrating biodiversity into other international/European projects and by connecting environment in the second half of the 20th policies and sectors. It identifies relationships with organizations through international century, and especially in the first decade of between biodiversity and economy, expressing specialized networks, thus fostering the the 21st century, adjusting its policy and the need of biodiversity sector to provide implementation and promotion of principles of legislation to the global and in particular EU guidelines for economic valorization of sustainable tourism and mechanisms of public requirements. Following that, in 2004, Serbian biodiversity and ecosystem services participation in the field. One of such networks government adopted the set of environmental assessment for the sake of environmental, has been created within the European Charter for laws, including the systemic Law on social and economic benefits of community. Sustainable Tourism in Protected Areas. Gathering Environmental Protection and three specific Social aspects are being mentioned, but not members from 36 European countries, the Charter documents: Law on Strategic Impact equally embedded. Though it recognizes stimulates strategic and action planning of Assessment (SIA), updated Law on importance of revenues coming from tourism sustainable tourism, aiming at ‘...the protection of Environmental Impact Assessment (EIA) and to protected areas, the Strategy defines tourism the natural and cultural heritage and the the Law on Integrated Prevention and Control of and outdoor activities as direct threats to continuous improvement of tourism in the Environmental Pollution. The systemic law and biodiversity (Draft / Strategy on Sustainable protected area in terms of the environment, local SIA/EIA define that the Spatial Plan of Republic Use of Natural Resources, 2012). population and businesses, as well as visitors’ of Serbia and National Strategy for Sustainable (Europarc Federation – European Charter for The development process of the (Draft) Use of Natural Resources and Goods make the Sustainable Tourism, 2013:4). Strategy for Sustainable Use of Natural national planning basis for the sustainable use Resources and Goods has been guided by the The Charter and the Charter Network is of natural resources and protected areas, while sustainable development as the main principle. coordinated by the EUROPARC Federation. Serbia urban planning provides plans for integrated Economic and social impacts of the Strategy is involved in work of the Federation, with national environmental protection (Maksin et al., 2011). are analyzed within the separate chapter, and nature park management and governmental New set of environmental laws was adopted in related to demographic, macroeconomic and bodies as members. In 2011, the Đerdap National 2009, covering seven specific fields: nature economic trends. However, tourism has not Park was hosting the 7th Charter Network Meeting protection, waste management, packaging and been mentioned at all in the Draft (Ibid.). on “Sustainable Tourism in Protected Areas: packaging waste, air protection, noise Building bridges - Seeking Solutions”. protection, ionizing and non-ionizing radiation As already mentioned above, The Law on protection. Environmental Protection (RS Official Gazette Above briefly reviewed sustainability principles No 135/2004; 36/2009), as a systemic law, embedded in global and European strategies, The most relevant strategies, such as the sets up the basis for an integral environmental governmental and business/international National Biodiversity Strategy (2011) and the system in Serbia. It also promotes linkages organizations’ policies, have been considered (Draft) Strategy for Sustainable Use of Natural with other sectors, guided by the principles of in order to provide context for further analysis Resources and Goods (2011) were developed integration and sustainable development: of the strategic and legislative framework for after above mentioned laws instead prior to it. sustainable tourism in Serbia. Among the main Still, those documents, as well as the National • Integration principle state authorities, those of sustainability principles, for the sake of this Strategy on Sustainable Development (2008), the autonomous province and local self- analysis, we are going to concentrate on the provide a solid strategic basis for the governance units, shall provide the integration following: integrated (cross-sector) approach sustainable tourism development in the of environmental protection and enhancement and the local community participation. country. into all sectoral policies by implementing mutually harmonized plans and programs and The National Strategy on Sustainable by implementing regulations through permit Development of RS (Official Gazette of system, technical and other standards and Republic of Serbia, No, 57/09) is based on norms, by financing through incentives and

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other measures of environmental protection. From the perspective of cross sector approach implemented by participating UN agencies • Principle of sustainable development - the and sustainability principles, the Strategy 2006 (UNDP, UNEP, FAO, UNWTO and UNICEF) and sustainable development is a harmonized needs significant improvements. Sustainable national partners, namely the Ministry of system of technical/technological, economic development principles are not clearly present Economy and Regional Development, Ministry and social activities in the overall development, as guidelines and the foundation of the of Agriculture, Forestry and Water where the natural and acquired values of the Tourism Strategy of Serbia. Management, and Tourism Organization of Serbia). It makes the basis for development of Republic are used in a cost-efficient and One of the four goals formulated in the Strategy the Rural Tourism Master Plan of Serbia. reasonable manner, in order to preserve and is the following: “By means of tourism, and in enhance the quality of the environment for the the best interest of the tourism development, By Environmental Goals of this document, it is present and future generations. Serbia must assure the long term protection of strongly recognized and suggested that rural The Law on Nature Protection (RS Official natural and cultural resources” (The Ministry of tourism should be developed as “…catalyst to Gazette No 36/2009; 88/2010) has clear and Economy and Finance of Serbia, 2012). Natural preserve, protect and manage natural and strong focus on sustainability principles, first values and protected areas are also estimated as cultural assets in rural areas, minimizing of all on sustainable use of resources, as well an important and solid basis for tourism pressures on biodiversity and by supporting as on integrated protection. It relates to the development by public policy groups consulted the sustainable usage of biological resources sector of spatial and urban planning and, during the development of the Strategy: in Rural Tourism projects…with respect to the indirectly, to other sectors relevant for according to results of the survey on character, the value and the carrying capacity protection and use of natural resources. environmental aspects, “…clean and preserved of the existing rural landscape”. (Spanish Mdg However, it does not specify precisely enough nature and beauty of the landscape” (Ibid.) is Achievement Fund - Joint Programme the possible links to tourism sector, but rather estimated by 3 on the scale from 1-5. At the Sustainable Tourism For Rural Development, defines relationships to organized visits and same time, in the same survey, the awareness of 2010). recreation activities in and around the the local population about the importance of the By its Social Strategy, the document focuses protected areas preservation of the natural and cultural heritage on the role that Rural Tourism should play in is marked by the lowest number – 1. The above selected and briefly analyzed addressing social issues in rural Serbia such environmental documents reflect modern While natural values and protected areas are as unemployment, depopulation and the international trends and European requirements seen as important resources for tourism disempowerment of women and the youth. towards sustainability, first of all a general development, and its integrated management Among other measures, the Strategy proposes orientation to strive for a balance between as one of the preconditions for its the following: environmental, social and economic sustainability, it is not recognized as one of the • To use rural tourism as a catalyst to drive the development. Looking at promotion of integrated key elements of tourism product branding. The diversification of the rural economy; approach as criteria in our analysis, it may be expansion of protected area over the territory of concluded that the Law on Environmental Serbia may be considered as one of the • To provide training and skills development; Protection is the closest to its fulfillment, while measures of its biodiversity protection, and • To activate the participation of women, youth in other documents there is still tendency to look that is the only, indirect, link found in the and other disadvantaged groups in Rural at tourism as a potential threat to the protection Strategy between biodiversity and tourism Tourism; of natural resources and not as a potential for the development. • To revitalize rural schools. sustainable development and use. Climate change, mitigation or adaptation, as well The rural tourism economic and tourism Tourism policy and legislation as some other environmental issues of global demand goals suggested in this document are importance (energy efficiency, renewable as follows: The most relevant strategies and legislation in resources and their sustainable use) are not the field of tourism in Serbia have been mentioned in the Strategy at all. In respect to the • Increase the demand for overnights; developed and adopted over the last ten years, climate change problem, it should be also noted • Increase revenues from rural tourism activities; supported by foreign technical and financial that the current legal framework is not fully • Increase occupancy rates of rural aid. However, as it was stated, the “plan supportive (Crnčević et al., 2011). accommodation. implementation is still at the low level, and aspects of economic development in trans- The concept of sustainable tourism is generally The Strategy is clearly guided by the global border cooperation are insufficiently recognized, though not directly mentioned, development goals (Millennium Development promoted” (Dabić et al., 2009:239). neither its principles systematically mainstreamed Goals, targeting in particular goals 1,7 and 8 ), EU into the Strategy. Economic development is accession principles and general principles of The Tourism Strategy of the Republic of Serbia predominant as a goal of the Strategy, aimed first sustainable development, defining the linkage of was adopted in 2006. The Project aimed at the of all at the development of competitiveness of rural tourism with environmental, social and other Support to Implementation of the National clusters and at the provision of “accommodation segments of economic sectors. Strategy for Tourism (2010-2012), funded by supply” in “undiscovered” areas (among which EU and performed in close cooperation with national parks and nature parks). The Tourism Law of Serbia (RS Official Gazette the Department for Tourism of the Ministry of No 36/2009,88/2010,99/2011), adopted in Economy and Finance as the main beneficiary, The Strategy for Sustainable Rural Tourism 2009 with updates from 2010 and 2011, is resulted in recommendations for updating “… Development in Serbia/Main Report - The based on the following principles: Document is developed within the MDG-F the Strategy related policies in line with best 1) integrated development of tourism and EU practice” (Support to the Implementation of Joint Program (JP) Sustainable Tourism for Rural Development in Serbia, being related activities as factors ofoverall economic the National Strategy for Tourism, 2012). and social development in line with the law

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provides for the implementation of mutually − Except for the Rural Tourism Development opportunities to be informed and involved in harmonized plans and programs; Strategy of Serbia, environmental issues are decision making on issues relevant for their 2) sustainable development of tourism only partially incorporated into the segments everyday life, and to government institutions and as a harmonized system of technical, of tourism documents and regulation; project holders new, sometimes complex, technological,economic and social activities protection of natural resources and protected responsibilities. In planning, as defined by Article based on economic development,preservation area expansion is accepted and promoted, 13 of the Tourism Law, the Strategic Master Plan of natural and cultural goods, preservation and but their sustainable use and relationship is a crucial document for “drafting spatial and development of the local community. between tourism and climate change, waste urban plans at the priority tourist destinations and management, energy efficiency and other tourism areas” as these plans shall establish The planning documents which should important issues, as recommended by “conditions for the construction of tourism contribute to the integrated planning of tourism relevant global and European documents, infrastructure facilities”. However, it should be and which should be harmonized with the ares not adequately emphasized and stated that the Law on Planning and Construction Tourism Development Strategy of the Republic involved; (Official Gazette of RS No 72/09, 81/09-change, of Serbia are specified in Article 5 of the Law 64/10-US, and 24/11) does not oblige the as follows: − At the strategy level, there is focus on predominance of one sector, despite the developer of the Plan to cooperate with the local 1) Tourism Development Strategy of the efforts to promote integrated approach to the community and civil society who live in the Republic of Serbia; development. For example, the National vicinity (Petovar, Jokić, 2011:10). Also, one of the 2) Strategic Master Plan; Biodiversity Strategy establishes links with limitations for public participation in decision making in Serbia is a lack of experience and 3) Strategic Marketing Plan; goals of economic development, stressing the need to support it by providing knowledge about techniques and methods, as 4) Program for the development of tourist guidelines for economic valorization of well as insufficiently developed mechanisms products; biodiversity and ecosystem services, and its and procedures for public participation in 5) Program for the development of tourism; sustainable use; however, at the same time, decision making. 6) Program of promotional activities. tourism is defined as one of the direct threats However, it should be stated that in recent years The most direct reference to protected nature to biodiversity conservation; the Strategy for initiatives have been taken to mobilize public areas and resources is made within the Sustainable Use of Natural Resources and awareness of various programmes and actions for proclamation of a tourist area, where listed in Goods (draft) relates to many other sectors, protecting the environment and implementing the contents of feasibility study (necessary part without precisely mentioning the tourism in sustainable development strategies such as the of proclamation documentation), in case there the entire text; from the side of tourism, with Local Environmental Action Programmes (LEAP) are some natural areas/goods on the territory of the exception of (drafted) strategies and and Local Agendas (LA21) (Crnčević, 2007). For particular tourism area (Article 17). Other programs for the Sustainable Rural Tourism, these, strong support of local authorities and environmental issues are not involved in this economic sectors and related goals are population has been reported, together with that of document. predominant to other sectors, including the foreign donors. environmental sector. Despite the above presented principles, this In strategies for tourism, rural tourism and Law applies to integral (the level of tourism LOCAL COMMUNITY PARTICIPATION natural resources development, there is a sector) rather than integrated approach. general awareness of community issues and Environmental issues (links to the Involving of local community in planning, their rights to public participation. There is a environmental sector and planning) are not decision making and implementing of activities common understanding on the needs of the mainstreamed into the document. Sustainable has been largely embedded in relevant public to be informed and involved in the tourism development is mentioned only in the international documents and requirements of development. However, this is interpreted second general principle on which the Law is EU policy. In Serbia, as in many other mainly as being confined to levels of based, and therefore represents a declarative countries, this is reflected in all the documents information and consultation rather than to rather than truly cross sector orientation. regulating environmental and tourism sectors, specific instruments and mechanisms of including planning procedures. participation on an equal basis. Based on the above given analysis of both environmental and tourism-related strategic The Law on Access to Information, Public In the documents in both sectors, the focus on and legal documents, it can be concluded that Participation in Decision-Making and Access “stakeholders”, “public”, local authorities or NGO there is a general common orientation towards to Justice in Environmental Matters, adopted in (civil) sector, is much stronger than on local integrated approach. Incorporation of this, as Serbia in 2004, provides the platform for communities and specifically targeted groups. one of the main sustainability principles, varies public participation relevant in many aspects Local community issues are directly incorporated among the analyzed documents and between for tourism development. into, and elaborated in the most successful the sectors (tourism and environment): The Law on Environmental Protection, as well as manner within, the Draft National Strategy of Sustainable Use of Natural Resources and Goods − Mainstreaming of environmental issues into specific laws pertaining to the Strategic Environmental Assessment (Law on Strategic and in the Draft Sustainable Rural Tourism other sectors is strong point of Development Strategy. There is a general respect environmental strategies and regulation; it is Environmental Assessment, RS Official Gazette No 135/2004 and 88/2010) and Environmental for local culture, but not directly related to the somewhat more developed in relation to promotion of traditional knowledge in sustainable economy than to social issues in most of the Impact Assessment (Law on Environmental Impact Assessment (EIA), RS Official Gazette No development and use of resources, or local cases (except for the Sustainable communities sharing in economic and other Development Strategy); 135/2004, 36/2009) and those covering planning procedures, bring to Serbian society new benefits of tourism.

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There is also a general awareness of the close (2012), tourism resources need to be clearly permanent efforts in policy improvements and interrelationship between local community defined in the law in order to be protected. capacity development of all stakeholders participation, e.g. opportunities for decision Mutual cooperation in developing tourism through local, national and international making in tourism/sustainable development, management plans of protected areas and cooperation is a necessary precondition for and capacity development of all the actors. tourism and cultural sites is one of the achieving progress in practice. This is slightly better promoted in preconditions for the implementation of environmental documents (in the Law on sustainability in the practice. Such a practice References Environment Protection and in the Biodiversity needs to be founded on clearly defined Strategy) in terms of understanding that the sustainable principles in strategic and legal Bramwell, B., Lane, B. (1993) Sustainable process has to be supported by different forms documents and plans in all the sectors. Tourism: An Evolving Global Approach, Journal of Sustainable Tourism, 1:1, pp.1-5 of awareness raising and education of locals, in Also, the strong determination of the addition to financial mechanisms and Crnčević, T. (2007) Strategic Environmental professionals involved in tourism development incentives. It is recognized as responsibility of Assessment as an Instrument for Enhacement planning for cohesion between nature formal governmental institutions, but the of Public Participation in Planning, SPATIUM protection and tourism development should be provision of such support should be International Review, No.15/16, pp.72-76. mentioned, as well as spatial specificity of the coordinated, not only performed, by them. Crnčević, T., Marić, I., Josimović, B. (2011) country, national development policies, Strategic Environmental Assessment and applied models and concepts, while the CONCLUSIONS Climate Change in the Republic of Serbia – importance of trans-border cooperation is Support to development and adjustment The last decade brought improvements into highlighted (Krunić et al., 2010). process, SPATIUM International Review, No.26, pp.14-19. Serbian policy and legislation in tourism and It is important to improve most of the environmental sectors, as the country is making documents in parts providing a basis for Crnčević, T., Therivel, R. (2009) Achieving progress towards the EU integration. It implies the democratic policy towards local communities sustainability in planning: English and Serbian progress in mainstreaming sustainable principles so that it could open more adequate experiences, Regional Development, Spatial Planning and Strategic Governance, Thematic into strategies and plans, as well as facing the opportunities: 1) for the public to participate Conference Proceedings-Volume 1. Belgrade: challenges in its implementation. instead of being only informed/consulted, and Institute of Architecture and Urban & Spatial Looking at tourism as one of the driving forces 2) for local stakeholders to be able to improve Planning of Serbia, pp.83-106. for further socioeconomic growth, the decision capacities and use all mechanisms of participation and decision making in the Dabić, D., Mitrović, S., Milijić, S. (2009) Strategic and policy makers are also aware that Planning of the Spatial Developmentof Sustainable development of tourism on sustainable basis. potentials for its development are not Tourism and its Limits in Serbia, Regional In that way, sustainable tourism development adequately realized. This has resulted in efforts Development, Spatial Planning and Strategic to provide international assistance in improving ‘should not only seek to minimize local Governance, Thematic Conference Proceedings- policy and practice in the field. 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The local, still much effort to be invested in the org/ sites /all /files/docpdf/davosdeclaration.pdf, th national, and international cooperation and implementation of sustainability has been accessed 20 May 2012. involvement of stakeholders are therefore not largely documented in recent years by many (Draft) Strategy on Sustainable Use of Natural only well formulated requests in most of the authors. In this context, it is not surprising that Resources, www.ekoplan.gov.rs, accessed documents, but obviously a necessary in Serbia there is a need for adjustments in 2nd Dec 2012. mechanisms for increasing competences to tourism policy, as well as in planning European Bank for Reconstruction and participate and make progress in this, as in documents and practice, in order to improve Development–Environmental and Social Policy, other fields of development. prospects for sustainable tourism www.ebrd.com, accessed 20th May 2012. There is a need for improving the strategic and development. In the result of comparative European Union Strategy for Sustainable legal documents in tourism sector in order to assessment of planning systems and SEA in Development (EU SDS), ec.europa.eu/sustainable, ensure better mainstreaming of environmental achieving sustainability, for example, authors accessed 20th Dec 2012. issues. In the tourism sector documents there reached the same conclusion, despite the Europarc Federation – European Charter for is a somewhat stronger tendency to provide the differences between countries, that there is Sustainable Tourism: http://www.european- basis for integral, rather than integrated ‘…quite slight promotion of sustainability in charter.org/home/, accessed 25th Jan 2013. approach (lack of linkage to other sectors). For plans …common for both England and Serbia’ Hjalager, A.M. 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Received August 2013; accepted in revised form September 2013

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