Draft Report of the High Level Group on Services Sector

Table 3a: Foreign Tourist Arrivals and Estimated Foreign Exchange Earnings

Year	Arrivals	% change over previous year	Foreign Exchange Earning in Rs crore	%change over previous year	Foreign Exchange Earning in million US $	% change over previous year
2003	2726214	14.3	20729	37.6	4463	43.8
2004	3457477	26.8	27944	34.8	6170	38.2
2005	3918610	13.3	33123*	18.5	7493	21.4
2006	4447167	13.5	403758	21.9	8934	19.2
2007**	4977193	12.4	49413*	22.4	11956	33.8

Source: Tourism Statistics 2007 at a Glance, Ministry of Tourism, Government of India

* Revised estimates ** Estimates

Undoubtedly tourism in India has a remarkable variety and contributes substantially to the economy, particularly in providing jobs, full time or part time. Growth in international tourist arrivals during recent years has been significant. International tourism has also provided sustenance to the Indian handicrafts industry (carpets and other handcrafted textile products; brassware; inlaid marble and rosewood; bidri; papier mache etc). However, as we have seen in Chapter I the Revealed Comparative Advantage (RCA) of India in travel services¹⁰ has been on the decline.
The increase in international tourist arrivals in the last four years looks good because of the very low base as the starting point. According to World Tourism Organisation (WTO) in 2006 there were more than 800 million international tourist arrivals, and the tourist’s receipts were US$ 735 billion. Despite the increase India’s share of international tourist arrivals in that year was a meagre 0.52 % and of tourism receipts 1.12 per cent. In 2006 the arrivals of international tourists in India were a small fraction of the international arrivals in the world’s top tourism destinations viz., France (79.1 million) and Spain (58.5 million). India figures low in the hierarchy of attractiveness of tourist destinations even in the region and some countries with much less variety in tourism products attract much higher numbers of international tourists, as can be seen from the following table:

Table 3b: International Tourist Arrivals in Asia & Pacific Region: in millions

S no	Countries	2004	2005	2006
1	China	41.8	46.8	49.6
2	Malaysia	15.7	16.4	17.5
3	Hong Kong	13.6	14.8	15.8
4	Thailand	11.7	11.6	13.9
5	Macau	8.3	9.0	10.7
6	Singapore	6.5	7.0	7.6
7	Japan	6.1	6.7	7.3
8	Korea, Republic	5.8	6.0	6.2
9	Australia	4.7	5.0	5.1
10	Indonesia	5.3	5.0	4.9
11	India	3.4	3.9	4.4

Source: UN WTO World Tourism Barometer, October 2007
During the last few years the number of Indians going out for tourism of India has risen rapidly and in 2006 it was approaching twice that of incoming international tourists.

Table 3c: Inbound and Outbound Tourists in India: in millions

Year	Inbound	Outbound
2003	2.78	5.35
2004	3.46	6.21
2005	3.92	7.18
2006	4.45	8.34

Source: Tourism Statistics 2006 at a Glance, Ministry of Tourism, Government of India
Many Indian leisure travellers find it more attractive to travel to foreign destinations than to destinations within the country and a substantial proportion is travelling to countries in the region, most notably Malaysia, Thailand and Singapore. According to International Passenger Survey conducted in 2003 about 16 per cent of Indians travelling abroad were leisure or holiday travellers. As the number of leisure travellers with the means to travel abroad has grown India’s position as a competitive tourism destination has clearly come under threat even for the Indian tourist. ¹¹
What are the impediments that lie at the root of this lack of competitiveness in tourism? Paucity of tourist accommodation, inadequate transportation arrangements made expensive by deficient infrastructure and taxation, inadequate development of tourist destinations, which are bereft of ambience and lacking in amenities for tourists and facilities for their entertainment are some of the major causes. One aspect that is becoming increasingly relevant is the sheer shortage of places of entertainment within a motorable distance of cities where families may go for leisure purposes for weekends. Most of the hill stations in both North and South India are highly overcrowded during the season and is avoided by the tourist class that has the a large disposable income. There are other more specific problems also and we take them all up in turn.
3.1 Tourist Accommodation

A proper census of the available hotel rooms in various cities and rural areas in India has never been held but unofficial estimates put the number at one million. But at the end of 2006-07 the number of rooms in hotels in star categories approved by the Ministry of Tourism was 100,000, out of which 30 % were in five star / five star-deluxe categories. As against 60,000 hotel rooms in Bangkok, for instance, there are 20,000 in Delhi and 25000 in Mumbai. An extreme shortage of hotel rooms has been felt particularly in Delhi, Mumbai, Bangalore and Goa. The shortage of rooms in these and other cities has pushed up the tariff rates to unprecedented levels, driving them beyond the reach of the upper middle class leisure traveller. India’s competitiveness for holding international meetings and conferences has been seriously affected and many of them whose first preference was to hold them in India moved to South East Asia on cost considerations.

It is estimated that the shortfall in tourist accommodation in the country will be 1,50,000 rooms by 2010 of which more than 1,00,000 will be in the budget category. The main reason for the shortage of hotels is the short supply of land suitable for construction hotels, particularly budget hotels. Action by the State Governments coupled with private sector activity have eased up the situation to some extent but the problem remains acute in some cities like Delhi, where auctioning of hotel sites by the DDA has priced out the construction of budget hotels. Land prices have shot up to astronomical levels and in many cities, especially the metros, land cost may account for 30 to 50% of the project cost against the international norm of 10 to 15 %.
The following measures to be taken by the Central/ State Governments or authorities under them could alleviate the difficulties in this regard:

• 
  Land use conversions may be allowed liberally from agricultural and institutional use, and even from residential use to hotel use within city limits or in their close proximity.
  
• 
  A higher floor area ratio (FAR) may be allowed for hotels in places where there is no congestion, in conjunction with strict rules on underground parking.
  
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  Land may be given on long-term lease or on a revenue sharing basis instead of being auctioned by a Government land owning agency.
  
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  Railways may make available lands for development of budget hotels by competitive bidding, on PPP basis. A modicum of freedom in taking commercial decisions will have to be given to the private sector partner although these will have to be subject to reasonable regulation.
  
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  Additional land is likely to be made available for hotel construction in the course of city side development in many of the 48 non-metro airports and 2 metro airports being developed by the Airports Authority of India and the 2 metro airports being constructed on PPP basis by the private sector. Other ideas to augment the supply of land for hotel construction include earmarking of the surplus lands within cantonment areas. In the scenario of acute shortage of urban land Cantonments could consider releasing some areas by construction of multi-storied residential and office buildings.
  
• 
  Many State Government Corporations have hotels and hotel-like properties. These are in most cases being run at sub optimum levels and in many cases at a loss. The availability of rooms can be enhanced and the quality of service upgraded if long-term leases are given to professional private sector hoteliers on the basis of international competitive bidding.
  
• 
  Adoption of single-window clearance of hotel projects as per the system adopted by the Governments of Andhra and Karnataka.
  
• 
  Encouragement of bed & breakfast schemes whereby owners of suitable residential accommodation are registered for offering accommodation to tourists and are treated as non-commercial activity and given the concession of relief from luxury tax and VAT and of residential rates for water supply and electricity, as has been done in NCT.
  

Apart from increasing the supply of land for the construction of hotels some aspects of State taxation practices that impact on hotels also deserve attention. State Governments levy Luxury Tax on hotel rooms ranging from 5 to 20 percent. A bigger problem is that some States the charges are levied on the basis of the rack rates or the published rates, and no allowance made if variations occur in the rate charged. The Group was informed that the concept of published rates is going out of favour in the hotel industry and most hotels work on floating or flexible tariffs. Rates are changed from season to season and sometimes from customer to customer. In the summer or monsoon months discounts are given ranging up to 50 per cent. In business cities like Bangalore deep discounts are given during the weekend. Charging of taxes on the basis of published taxes causes great annoyance to both domestic and foreign clients and undermines the competitiveness of the Indian tourism.