Grassroots Journal of Natural Resources, Vol.8 No.

2 (August 2025)
ISSN: 2581-6853 | CODEN: GJNRA9 | Published by The Grassroots Institute
Website: https://grassrootsjournals.org/gjnr | Main Indexing: Scopus and WoS

ISSN 2581-6853 | 8(2) August 2025 00574 | Research & Analytical Article

Governing Sustainable Tourism of Small Islands in

Makassar, Indonesia and the Visayas, Philippines
Ihyani Malik1, Andi Luhur Prianto*2, Estefanie Cortez3
1
Department of Public Administration, Universitas Muhammadiyah Makassar, Indonesia.
Email: [email protected] | ORCID: https://orcid.org/0000-0001-5637-6996
2
Department of Government Studies, Universitas Muhammadiyah Makassar, Indonesia.
Email: [email protected] ǀ ORCID: https://orcid.org/0000-0003-2828-3981
3
Department of Political Economy, Polytechnic University of the Philippines, Manila,
Philippines. Email: [email protected] | ORCID: https://orcid.org/0000-0002-4505-9335
*Corresponding author

How to cite this paper: Malik, I., Prianto, A.L. Abstract

and Cortez, E. (2025). Governing Sustainable The tourism industry in Southeast Asia, especially in Indonesia and the
Tourism of Small Islands in Makassar, Indonesia Philippines, is growing rapidly. This research analyzes sustainable tourism
and the Visayas, Philippines. Grassroots Journal management on small islands in Makassar, Indonesia, and the Visayas,
of Natural Resources, 8(2): 531-551. Doi:
Philippines. This research uses a descriptive-qualitative approach carried
https://doi.org/10.33002/nr2581.6853.080225
out by a literature study. The results showed that Visayas has a more
advanced ecotourism management system with strict regulations related to
environmental protection, implementation of zero-waste programs, and
Received: 05 July 2025 strengthening community participation in community-based ecotourism.
Reviewed: 26 July 2025 On the other hand, Makassar City still faces challenges in tourism
Provisionally Accepted: 29 July 2025 management, especially in aspects of environmental conservation,
Revised: 01 August 2025 equitable distribution of economic benefits, and the development of
Finally Accepted: 07 August 2025 infrastructure and facilities that support tourism sustainability. The level of
Published: 25 August 2025
environmental awareness among communities and tourists in Visayas is
Copyright © 2025 by author(s)
higher compared to Makassar, which is influenced by conservation
education programs and the active participation of local communities.
Publisher’s Note: We stay neutral with regard to Therefore, this study recommends improving environmental regulations,
jurisdictional claims in published maps, permissions developing community-based ecotourism, and optimizing tourism
taken by authors and institutional affiliations. infrastructure in Makassar so that the tourism sector can develop
sustainably. Future research can explore the best policy models in island
This work is licensed under the Creative Commons tourism management, long-term impacts on ecosystems, and the use of
Attribution International License (CC BY 4.0). technology in improving tourism sustainability in coastal and island areas.
http://creativecommons.org/licenses/by/4.0/
Keywords
Governing; Sustainable tourism; Environmental management; Community
participation
Executive Chief Editor
Dr. Hasrat Arjjumend Introduction
Associate Editor
Dr. Usongo Patience
Assistant Managing Editor Tourism development is currently directed towards sustainable
Mr. Kartik Omanakuttan development (Sayuti, 2023; Tamrin, Lubis and Musleh, 2024;
Younus et al., 2025a). It is caused sustainable tourism development
Grassroots Journal of Natural Resources, Vol.8, No.2 (August 2025), p. 531-551 | ISSN 2581-6853 | CODEN GJNRA9
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policies are directed at using natural resources and human resources for the long-term
(Jermsittiparsert et al., 2021; Junus, Harun and Napir, 2024; Kurniawan et al., 2019;
Sriyakul et al., 2019). Tourism is seen as a generator of employment and economic growth.
Tourism activities' primary purpose is to obtain pleasure or eliminate feelings of pressure
due to work routines (Setijawan, 2018). In this condition, acquiring satisfaction from
activities carried out by tourists is very important (Manggala, Widanti and Wiadnyani,
2024). Tourism is one of the potentials that is now widely explored and developed in many
countries (Prianto et al., 2023; Setijawan, 2018). Tourism can be considered an ecosystem
service, namely cultural ecosystem services. There is an increasing trend in the
international tourism market to travel in unspoiled areas (Prianto et al., 2024; Teguh,
2024). This trend provides more sustainable tourism development opportunities, especially
on small islands with unique attractions and high biodiversity (Hajar, Faustyna and Kholik,
2022; Silva and Roque, 2024). However, improper management can adversely affect the
environment and the lives of local communities (Añasco et al., 2021; Chienwattanasook
and Prianto, 2018; Jermsittiparsert et al., 2019).

Sustainable tourism is a significant concern in destination management, especially in

small islands vulnerable to environmental and social impacts (Fakfare et al., 2024;
Younus et al., 2025b). Small islands contribute to global and local tourism markets.
Small islands characterize archipelagic countries and often have high biodiversity
(Añasco et al., 2021; Pecheniuk et al., 2025). Small islands have unique environmental
characteristics that make them vulnerable or susceptible to natural and human-induced
disasters (Asrial et al., 2021; Sayuti, 2023). Sustainable tourism management on small
islands is challenging, especially in balancing economic utilization and environmental
sustainability (Fang et al., 2024; Halunko, 2024; Ostapenko et al., 2024).

Small islands in Makassar City, Indonesia, and Visayas, Philippines, have great potential
in the tourism industry with their natural beauty and biodiversity, attracting domestic
and international tourists (Ranieri et al., 2024). Makassar City has great potential in the
tourism sector with its natural beauty, which includes exotic beaches, rich marine
ecosystems, and fascinating cultural heritage (Rohana and Wahyuni, 2019). The
existence of small islands around Makassar City, such as Samalona Island and
Kodingareng Keke Island, is a major attraction for tourists (Prakasa, Sawu and Ulinuha,
2023). Makassar City has an area of approximately 175.8 km², which includes land and
water areas that support the tourism sector. However, the main challenge in developing
tourism in this region is balancing natural resource exploitation and environmental
conservation (Asmal, 2016; Hakim, Razak and` Prianto, 2023; Kurniawan et al., 2023).
In the absence of a sustainable management strategy, overexploitation can damage
coastal and marine ecosystems, which in turn can threaten the sustainability of the
tourism sector itself (Kasim et al., 2021).

The Visayas has enormous tourism potential with its tropical natural beauty, especially
in areas such as Cebu, Bohol, and Boracay, famous for their white sand beaches and
biodiversity (Fernandez-Abila et al., 2024). As one of the major tourist destinations in
the Philippines, the Visayas covers an area of approximately 61,077 km², consisting of
numerous small islands with unique ecological characteristics (Fang et al., 2024).
However, like Makassar, the challenge in tourism management in the Visayas lies in
maintaining environmental sustainability while developing the tourism sector to drive

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economic growth (Segarra et al., 2024). Sustainable tourism management is critical in

ensuring that tourist destinations in these two regions can continue to grow without
compromising the ecosystems that are their main assets (Arifin et al., 2024).

Research on Sustainable Tourism has been done a lot, including Research from Espiritu,
Jane and Lawas (2019), which discusses Issues, Challenges, and Opportunities in
Sustainable Tourism Development in Central Visayas: Specific and Common Concerns
of Cebu and Bohol. The results showed that sustainable tourism expansion and
development provide an impetus for job creation and consequently bring opportunities
to increase income among the Cebuano workforce living in rural areas and coastal
destinations where tourism activities are located. Research conducted discusses
Measuring Small Island Disaster Resilience Towards Sustainable Coastal and Fisheries
Tourism: The Case of Guimaras, Philippines. The study results show that globally
growing sun, sand, and sea-based tourism encourages community resilience in small
island destinations such as Guimaras. This contributes to sustainable development by
making tourism an alternative source of livelihood while reducing pressure on
overexploited fish stocks. Then, Research from Kurniawan et al. (2019), Subair, Prianto
and Amri (2025), Tsolocto (2025), Rengganis et al. (2023) and Yuslaini et al. (2023)
discusses the social-ecological status of small islands: An evaluation of island tourism
destination management in Indonesia. The results showed that tourism development and
ecosystem management are still not balanced, where tourism development efforts have
not been fully accompanied by adequate environmental management.

The natural environment strongly influences tourism development, but tourism also
hurts the environment, as demonstrated by the lack of appropriate sustainable
development strategies. Poorly managed tourism activities can lead to overexploitation
of natural resources, environmental pollution, and ecosystem degradation. For example,
developing tourism infrastructure that does not consider the environment's carrying
capacity can damage coastal and marine ecosystems, such as coral reefs, through
uncontrolled snorkeling and diving activities. In addition, an increase in the number of
tourists without an adequate waste management system can create water and soil
pollution, thus threatening environmental sustainability and ecosystem balance in these
tourist destinations. This problem is further exacerbated by climate change, which causes
rising sea levels and coastal erosion, which in turn can impact tourism's attractiveness
and local communities' welfare. Therefore, based on the background of the problem, this
study aims to analyze how sustainable tourism management is implemented in small
islands in Makassar, Indonesia, as well as in the Visayas, Philippines.

This introduction aims to explain the rationale and urgency of research on governing
sustainable tourism on small islands. This highlights the negative impacts of
uncontrolled tourism on the natural environment, such as resource exploitation,
pollution, and ecosystem degradation. Additionally, this introduction highlights how
climate change exacerbates the vulnerability of small island destinations, which in turn
can affect tourism appeal and the well-being of local communities. The rationale for this
study is related to the potential and specific characteristics of small islands and the
critical importance of tourism to their economies, as well as the challenges emerging
from tourism sector interactions, such as high dependence on tourism, socio-ecological
vulnerability, and complex governance. The specific objectives of this study are to

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analyze policies and governance, evaluate impacts, identify development opportunities,

and formulate policy recommendations of sustainable tourism governance on the small
islands of Makassar, Indonesia, and Visayas, Philippines.

Methodology

This research explores critical aspects of governing sustainable tourism in the context of
small islands, specifically focusing on islands in Makassar, Indonesia, and the Visayas
region of the Philippines. The research aims to understand the mechanisms, challenges,
and successes in implementing sustainable tourism governance practices, taking into
account the unique socio-economic, environmental, and cultural vulnerabilities of these
small island destinations. Through comparing and contrasting approaches in these two
distinct geographical locations, the study seeks to identify best practices and provide
policy recommendations to foster resilient and responsible tourism development that
benefits local communities and conserves natural resources.

This research uses a qualitative explanatory approach that prioritizes literature studies.
Previous research studies are used as a reference source for the author in reviewing and
answering the problem formulation stated. Furthermore, the author also uses articles,
news, and official websites related to Sustainable Tourism Governance in Makassar
City, Indonesia, and Visayas, Philippines.

Authorized tourism websites, such as those maintained by tourism ministries or

departments (e.g., Wonderful Indonesia, by the Ministry of Tourism and Creative
Economy, and it’s more fun in the Philippines, by the Department of Tourism of the
Philippines), as well as local Tourism Offices and Agencies, are highly credible and
authoritative data sources for tourism-related information. The data collected and compiled
includes official statistics on the number of visitors, tourism regulations, destination
development policies, licensed tour operator lists, official accommodation information,
event calendars, and tourism-related information disclosure. The information's validity is
confirmed as it is published directly by the appropriate authorities, providing a strong and
reliable foundation for verifiable tourism data analysis.

The previous research sources originated from publications in peer-reviewed journals

focused on sustainable tourism, regional development, governance studies, or Southeast
Asian studies, such as university-affiliated journals (e.g., journals associated with the
University in Makassar or universities in the Visayas) or leading international publishers
in these areas of tourism governance. The research employs content analysis as its data
analysis technique. This technique examines data from various sources in depth to identify
patterns, trends, and challenges in sustainable tourism management in both regions.

In this study, content analysis has been utilized as the main method for data analysis.
This method systematically categorizes and interprets collected and compiled qualitative
data, hence enabling the identification of recurring themes, patterns, and meanings in
textual or visual content. Thoroughly breaking down data sources into manageable units
and applying a consistent coding framework, content analysis facilitates objective and
verifiable examination of information, which ultimately leads to a deeper understanding
of the research phenomenon.

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Further improving the quality of this methodology, the data source triangulation strategy
is strengthened by systematically comparing and confirming findings obtained from
scientific literature, official government websites, and media reports. This helps validate
the consistency and reliability of the information. Furthermore, a more detailed
explanation of the coding framework used in content analysis, including examples of
anticipated categories or main themes, will increase the transparency and replicability of
the study. Finally, despite its qualitative focus, reflecting on researcher bias in data
interpretation and the steps taken to mitigate it, such as through discussions with fellow
researchers or cross-verification of interpretations, will further strengthen the objectivity
and credibility of the findings.

Result and Discussion

The development of the tourism sector in Indonesia is governed by several key policy
documents, which reflect a commitment to sustainable tourism development and
providing benefits to local communities.
• Law No. 10 of 2009 on Tourism: This is the primary legal document governing all
tourism-related matters in Indonesia, including planning, destination development,
the tourism industry, marketing, and institutional matters. The law also emphasizes
the importance of sustainable tourism and community empowerment.
• The Government Regulation No. 50 of 2011 on the National Tourism
Development Master Plan (NTDMP) for the period 2010-2025: This document
serves as a long-term roadmap for national tourism development. The NTDMP
establishes the vision, mission, objectives, and strategies for tourism development
in Indonesia, encompassing four key pillars: destinations, marketing, industry, and
tourism institutions. This document also guides the formulation of Local Tourism
Development Master Plans at the provincial and regency/city levels.
• Ministry of Tourism and Creative Economy Regulations: The Ministry of Tourism
and Creative Economy has released a couple of more specific ministerial regulations
to implement tourism policies. An example of this includes: (1) Ministry of Tourism
and Creative Economy Regulation No. 9 of 2021 concerning Guidelines for
Sustainable Tourism Destinations. This regulation provides comprehensive
guidelines on the sustainable management of tourism destinations, including
economic, cultural, and environmental aspects; (2) Ministry of Tourism and
Creative Economy Regulation No. 2 of 2024 concerning the Implementation of the
National Tourism Development Index: This document regulates how the tourism
development index is measured and used to monitor progress in the tourism sector;
(3.) Ministry of Tourism and Creative Economy Regulation No. 11 of 2022
concerning the Strategic Plan of the Ministry of Tourism and Creative Economy:
This document outlines the ministry's strategic plan for a specific period, including
adaptation to new challenges and opportunities, such as post-COVID-19 pandemic.

The Philippines also has a structured policy framework to drive the development of its
tourism sector, with a focus on inclusive and sustainable growth.
• Republic Act No. 9593 (Tourism Act of 2009): This law is the comprehensive
legal framework for the development, promotion, and regulation of tourism in the
Philippines. It establishes the Department of Tourism (DOT) as the main agency

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responsible for tourism development and sets out various incentives and
guidelines for tourism investment.
• National Tourism Development Plan (NTDP): This is the Philippines' primary
strategic planning document for the tourism sector. Currently, the relevant plan is
the National Tourism Development Plan (NTDP) 2023-2028. The NTDP serves as
a blueprint outlining the strategies and actions required to achieve national tourism
objectives, including positioning ASEAN as a premier tourism destination.

Sustainable tourism governance on small islands like those in Makassar and the Visayas
is a complex task that involves multiple stakeholders in balancing economic growth from
tourism with environmental protection and the social well-being of local communities.
Key governance challenges include limited local government capacity, traditional land
ownership conflicts, lack of inter-agency coordination, issues related to waste and clean
water, and weak participation of local communities in decision-making. The small
island's geographical condition, which is vulnerable to the impacts of climate change and
natural disasters, further complicates effective governance efforts. Therefore, a holistic
and integrated approach involving the government, private sector, communities,
academia, and media is needed to create a strong framework. Islands have unique
geographical and ecological characteristics, making them centers of biodiversity and
leading tourism destinations that contribute significantly to local and national
economies. Their natural beauty, such as white sandy beaches, coral reefs rich in marine
life, and distinctive maritime culture, makes the islands a significant attraction for
domestic and international travelers. However, behind this potential are various
challenges in tourism management, especially related to ecosystem sustainability and the
welfare of local communities. Unsustainable management can lead to environmental
degradation, such as coral reef damage due to uncontrolled tourism activities, marine
pollution, and over-exploitation of natural resources. To achieve economic benefits from
tourism without compromising environmental sustainability and local culture, a
comprehensive sustainability-based management strategy is essential.

Figure 1: Spermonde Map of Makassar City

(Source: Googel Earth in Makassar City in Figure, Central Statistics Agency, 2024)
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Figure 1 shows the Spermonde archipelago in the waters of Makassar City, South
Sulawesi. The archipelago consists of dozens of small islands spread across the Makassar
Strait, ranging from inhabited to conservation islands. This map also displays the
administrative boundaries of Makassar City, Maros Regency, Takalar Regency, and
Gowa Regency. Some islands known as marine tourism destinations in this region
include Samalona Island, Kodingareng Keke Island, and Lae-Lae Island. Apart from
being a tourist destination, this region is also important for marine ecosystems because
it has a coral reef ecosystem and a habitat for various aquatic species.

Figure 2: Map of Visayas, Philippines (Source:

http://www.ethnicgroupsphilippines.com/philippines-profile/map/map-of-visayas/)

Figure 2 shows the Visayas archipelago, one of the three central regions in the
Philippines, besides Luzon and Mindanao. The region consists of provinces such as
Cebu, Bohol, Negros Oriental, Negros Occidental, Iloilo, Leyte, and Samar. The map
also shows the main languages spoken in each province, such as Cebuano in Cebu and
Bohol, and Waray in Samar and Leyte. The Visayas have a more varied topography than
the Spermonde Islands, with a combination of lowlands, mountains, and coastal areas.
Besides being famous for beach tourism, the Visayas has ecotourism destinations based
on tropical forests, caves, and protected coral reefs. As one of the economic and tourism
hubs of the Philippines, this region features a more developed infrastructure compared
to the Spermonde Islands, with both sea and air transport systems connecting the islands.

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Table 1: List of Small Islands in Makassar City

No. Island Name Area Characteristics Main Attractions Facilities
(Approx)
1. Pulau ±2,34 It is a small island Coastal scenery, Lodging, rinse
Samalona hectares with white sand and underwater rooms, stalls, and
coral reefs rich in beauty, and World diving and
biodiversity War II snorkeling
shipwrecks. equipment rentals
and guides.
2. Pulau Lae-Lae ±6 hectares An inhabited island Charming sea Toilets, Parking
with a natural view, Sunset lots, Food stalls,
atmosphere close to view, Swimming Cafeteria, Photo
the city and Snorkeling, spots, Facilities
Cultural tourism, for worship,
Historical tourism Lodging, Game
rides
3. Pulau ±1 hectares Tourist islands White sand beach, Lodging, Hall,
Khayangan developed as Ocean view, Camping,
recreational Restaurant,
destinations Function
building,
Children's
playground, Sport
facilities, Fishing
platform
4. Pulau ±1 hectares Fishing islands with View of Makassar Bathrooms,
Kodingareng white sandy beaches city lights at night, Gazebo for
Keke and underwater Snorkeling resting, Rental of
beauty snorkeling
equipment,
diving
equipment,
hammocks, and
mats, Photo
spots, such as
piers, Swimming
spots by the
beach
(Source: Makassar City in Figure, 2024)

Table 1 explains that the small islands in Makassar City have great potential to be
developed as a leading tourist destination. The uniqueness of each island, ranging from
underwater beauty on Samalona Island, cultural and historical tourism on Lae-Lae
Island, modern recreational facilities on Khayangan Island, to the exotic atmosphere on
Kodingareng Keke Island, is the main attraction for local and foreign tourists. Strategic
planning in tourism management and promotion is required to optimize this potential.
Infrastructure improvements, such as better jetties, organized sea transportation routes,
and supporting facilities such as accommodation and tourist information centers, can
improve tourist comfort. Ecotourism-based tourism development also needs to be
considered to maintain environmental sustainability, especially in coral reef ecosystems
and marine biota, which are the main attractions on some of these islands. Marketing

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and promotion strategies are also essential in developing the tourism potential of small
islands in Makassar. The local government and tourism industry players can utilize
digital technology to increase the visibility of these destinations through social media,
travel platforms, and cooperation with travel agents. Annual events such as marine
festivals, snorkeling, and diving competitions can attract more tourists and increase the
competitiveness of Makassar's tourism destinations with other regions. The engagement
of local communities in tourism management must be enhanced, whether by training
tour guides, managing homestays, or developing local products like culinary specialties
and souvenirs. With sustainable and innovative management, Makassar's small islands
can become tourist destinations that are not only attractive but also provide economic
benefits for local communities and preserve their natural environment. This can be
realized by implementing strict regulations on tourism activities that have the potential
to damage the environment, as well as increasing tourists' awareness of the importance
of marine ecosystem conservation.

Table 2: List of Small Islands in Visayas, Philippines

No. Island Name Area Characteristics Main Attractions Facilities
(Approx)
1. Boracay ±10.3 km² Small island with White Beach, Resort, beach, and
white sand and beautiful sunset, outdoor activities
bustling nightlife water activities,
nightlife
2. Bohol ±4,820 km² It is a big island Chocolate Hills,
Swimming pool,
with unique Tarsier Sanctuary,
Airport shuttle,
landscapes and a Alona Beach Car park, Shuttle
rich culture service, Free
WiFi, BBQ
facilities, Luggage
storage, Fitness
center
3. Cebu ±4,943 km² A central peninsula Falls area, diving at Water park,
with beaches, Moalboal & accommodation,
waterfalls, and Malapascua and shopping
historical sites center.
4. Siquijor ±337 km² Exotic islands Salagdoong Beach, Exclusive guest
known for mystical Cambugahay Falls, rooms, Lobby,
myths and cultural tourism Restaurant, Bar,
beautiful beaches beach, Air
conditioning,
Refrigerator,
Seating area
5. Gigantes ±24 km² Remote islands Hidden beaches, White sandy
Islands (keseluruhan with white sand natural lagoons, beach, natural
kepulauan) and coral cliffs snorkeling lagoon pool,
limestone
formations, and
camping grounds.
Sources: https://www.britannica.com/place/Visayan-Islands

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Table 2 explains that the small islands in the Visayas region of the Philippines offer a
variety of unique tourism experiences with diverse natural and cultural characteristics.
Boracay is the most popular tourist destination with its White Beach, lively nightlife,
and water activities appealing to domestic and international travelers. With its extensive
resort facilities, Boracay is a top choice for travelers seeking natural beauty and modern
entertainment. Bohol and Cebu, though more extensive in area, are still categorized as
the top tourist destinations in the Visayas archipelago. Bohol is known for its unique
Chocolate Hills landscape and Tarsier conservation, while Cebu offers world-class
diving experiences, exotic waterfalls, and rich historical sites. Both islands have more
developed tourist infrastructure, including airport shuttle services, fitness centers, and
shopping malls, making it easy for travelers to get around.

Meanwhile, Siquijor and Gigantes Islands offer a more exotic and close-to-nature travel
experience. Siquijor is famous for its beautiful beaches and mystical myths that attract
travelers looking for a unique experience. The island has adequate accommodation
facilities, including exclusive guest rooms, restaurants, and bars. The Gigantes Islands
are better known as an adventure tourism destination with hidden beaches, natural
lagoons, and stunning limestone formations. Unlike Boracay or Cebu, which have
modern facilities, the Gigantes Islands are more suitable for tourists who like nature
tourism with activities such as snorkeling and camping. To improve the competitiveness
of tourist destinations in the Visayas, it is necessary to develop sustainable tourism
potential by paying attention to environmental aspects, infrastructure, and tourism
promotion. Accessibility improvements, such as more efficient sea and air transport, can
support tourism growth in less developed islands like the Gigantes Islands and Siquijor.
Sustainable environmental management should be a priority, especially in ecotourism-
dependent destinations such as Bohol and Cebu. This can be done through strict waste
management regulations, coral reef conservation, and tourism education on the
importance of preserving nature. On the other hand, strengthening the local economy
also needs to be a concern for tourism development in Visayas. The government and
businesses can empower local communities by involving them in the tourism industry,
for example, through homestay programs, providing tour guide services, and promoting
regional cultural and culinary products. In addition, the use of digital technology in
tourism promotion, such as marketing through social media, creating travel apps, and
virtual reality-based tourism campaigns, can increase the interest of global travelers.
With the integrated development of infrastructure, environmental sustainability, and
community empowerment, small islands in the Visayas can become flagship sustainable
tourist destinations with broader appeal.

Table 3: List of tourist visits in Makassar City, Indonesia

Number of Years
Tourist visiting 2020 2021 2022 2023 2024
1,580,668 1,889,597 3,430,697 4,074,634 5,524,000

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55,24,000

40,74,634

34,30,697

18,89,597
15,80,668

2020 2021 2022 2023 2024

Figure 3: List of tourist visits in Makassar City (Sources:

https://makassarkota.go.id/potensi/potensi-pariwisata/)

Data in the table 3 and figure 3 explain that the number of tourists visiting Makassar City
has increased from 2020 to 2024. In 2020, the number of tourists was recorded at
1,580,668 people, then increased to 1,889,597 in 2021, or around 19.5%. The recovery
of the tourism sector most likely influenced this increase after the COVID-19 pandemic.
This trend continued with a sharp spike in 2022, where the number of tourists reached
3,430,697 people, experiencing a growth of 81.6% compared to the previous year. This
increase can be attributed to the easing of travel policies and the increasing interest of
tourists in returning on holiday. Furthermore, in 2023, the number of tourists increased
to 4,074,634 people, experiencing a growth of 18.8%. The peak of the increase occurred
in 2024, with the number of tourists reaching 5,524,000 people, an increase of 35.6%
compared to the previous year. This shows that Makassar City is increasingly becoming
an attractive destination for domestic and foreign tourists.

One of the main factors contributing to the increase in the number of tourists in Makassar
City is the charm of marine tourism, especially the existence of small islands with unique
attractions. Natural beauty, cultural tourism, and recreational facilities that are
increasingly developed make the islands around Makassar City a leading tourist
destination. Infrastructure development, such as docks, more organized sea
transportation routes, and accommodation facilities, needs to be improved to optimize
this potential. In addition, digital marketing strategies, cooperation with travel agents,
and organizing annual events such as marine festivals can further increase tourist
attractiveness. Ecotourism-based management must also be considered to maintain
environmental sustainability, especially in aquatic ecosystems, which are the main assets
of marine tourism.

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Table 4: List of tourist visits in the Philippines

Number of Years
Tourist 2020 2021 2022 2023 2024
visiting 13,753,000 22,697,000 374,346,000 514,416,000 520,549,000

51,44,16,000 52,05,49,000

37,43,46,000

1,37,53,000 2,26,97,000

2020 2021 2022 2023 2024

Figure 4: List of tourist visits in Filipina (Source:

https://www.statista.com/statistics/1053908/philippines-number-of-foreign-visitor-
tourist-arrivals/)

Data in table 4 and figure 4 show that the number of tourist visits in the Philippines
experienced significant growth from 2020 to 2024. In 2020, the number of tourists was
recorded at 13,753,000 people, then increased to 22,697,000 people in 2021, an increase
of around 65.1%. This growth is most likely due to the recovery of the tourism sector
after travel restrictions due to the COVID-19 pandemic began to be relaxed. A drastic
increase occurred in 2022, when travelers jumped to 374,346,000 people, showing
extremely high growth. This surge can be attributed to various economic recovery
policies that boosted the tourism industry, including massive promotions and the
reopening of major tourist destinations. In 2023, the number of tourists continued to
increase to 514,416,000 people, experiencing a growth of approximately 37.5% from the
previous year. The peak came in 2024, when the number of tourists reached 520,549,000
people, although growth began to slow down with an increase of only about 1.2% from
the previous year. This shows that the Philippines has reached a plateau in tourist
arrivals, with tourism continuing to grow as a key sector of the economy.

One of the main factors supporting the growth of the tourism sector in the Philippines is
the attractiveness of small islands, especially in the Visayas region. Islands in the
Visayas, such as Boracay, Cebu, and Bohol, have outstanding natural beauty, ranging
from white sandy beaches and coral reefs rich in marine life to distinctive and interesting
cultures for tourists. The Philippines' success in attracting many tourists is attributed to
its aggressive tourism promotion, improved tourism infrastructure, and policies

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supporting the sector, such as ecotourism destination development and environmental

sustainability. Maritime tourism and nature-based activities, such as diving, snorkeling,
and cave exploration, are increasingly popular among domestic and international
tourists. Therefore, the Philippine government needs to balance tourism industry
development and environmental preservation, especially in small islands vulnerable to
the negative impacts of over-tourism.

Table 5: Comparison of Small Island Governance in Makassar, Indonesia, and Visayas,

Philippines
No. Comparative Small Islands in Makassar, Small Islands in Visayas,
Aspects Indonesia Philippines
1. Government Managed by the Makassar City Local governments have strict
Policy Government and the South policies on environmental
Sulawesi Provincial Government, conservation and sustainable
environmental tourism tourism management.
regulations are still developing.
2. Environmental Conservation efforts are still More advanced, with protected
Conservation limited; some islands experience areas such as Apo Island, which
ecosystem degradation due to has strict regulations regarding
tourism and development coral reef protection.
activities.
3. Waste The waste management systems Zero-waste programs are more
Management are not optimal; plastic pollution active on some islands, with
is still in some tourist education to communities and
destinations. tourists.
4. Community Local communities are involved Community participation is more
Participation in the tourism sector, but their active, especially in community-
role is still limited to the based tourism.
informal sector.
5. Ecotourism The concept of ecotourism is More developed with
and starting to develop, but it is not conservation-based ecotourism,
Sustainability yet a top priority in tourism such as in Siquijor and
planning. Pamilacan Island.
6. Facilities and Basic infrastructure, such as Better planned tourist facilities,
Infrastructure lodging and equipment rental, is including eco-lodges and
available, but sanitation and tourism information centers.
clean water management
improvements are needed.
7. Social and Tourism contributes to the local More positive economic impact
Economic economy, but there are still on the community as the
Impacts challenges to the equitable community-based tourism model
distribution of economic is more developed.
benefits.

Table 5 shows differences in managing small islands in Makassar City, Indonesia, and
Visayas, Philippines, especially in government policy, environmental conservation, waste
management, community participation, ecotourism, facilities, and social and economic
impacts. In terms of government policy, small islands in Makassar City are still developing
regulations related to environmentally-based tourism, with the leading role held by the
Makassar City Government and the South Sulawesi Provincial Government. Meanwhile,

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local government policies in Visayas are more stringent in regulating environmental

conservation and sustainable tourism management. This can be seen from specific
regulations that limit tourist activities to preserve the environment, such as those
implemented in several conservation islands. A stronger regulatory approach in the
Visayas helps protect the ecosystem and ensures that tourism does not harm the
environment in the region. Regarding environmental conservation, Visayas is putting more
effort into it than Makassar City. Some islands in the Visayas, such as Apo Island, have
stringent conservation policies regarding protecting coral reefs and other marine
ecosystems. This contributes to the sustainability of aquatic tourism and increases the
attractiveness of tourists who care about ecotourism. In contrast, small islands in Makassar
still face various challenges in environmental conservation, where ecosystem degradation
still occurs due to uncontrolled tourism and development activities. An increase in the
number of tourists not matched by strict regulations has led to various environmental
problems, including damage to coastal ecosystems and marine pollution. Regarding waste
management, the Visayas also has an advantage in implementing zero-waste programs in
tourist destinations. The government and local communities are actively educating the
public and tourists on the importance of plastic waste reduction and recycling. In contrast,
the waste management system in the small islands of Makassar City still faces significant
obstacles, where plastic pollution is still a serious problem in several tourist destinations.
The lack of adequate waste management facilities and low awareness among tourists and
local communities exacerbate this situation.

Community participation in the tourism sector also shows stark differences between the
two regions. In Makassar City, local communities are involved in tourism activities.
However, their role is still limited to the informal sector, such as small businesses in
tourist equipment rental and food or souvenir sales. Meanwhile, community participation
is much more active in Visayas through community-based tourism. This model allows
local communities to take a more significant role in direct tourism management,
including environmental conservation, destination operations, and equitable economic
benefits. Communities in the Visayas have significant potential to benefit from the
tourism sector, leading to sustainable improvements in their welfare. In terms of
ecotourism and sustainability, the Visayas again excelled with destinations that embrace
the concept of conservation-based tourism, as seen in Siquijor and Pamilacan Island.
This approach allows the development of tourism that is not only economically
beneficial but also maintains the balance of the ecosystem. In contrast, the concept of
ecotourism in Makassar is still in its early stages and has not yet become a top priority
in developing the tourism sector. This causes several tourist destinations in Makassar
City to not have optimal planning in maintaining a balance between increasing the
number of tourists and environmental sustainability. Facilities and infrastructure are also
a differentiating factor between the two regions. In the Visayas, tourist facilities have
been better developed, including eco-lodges, tourism information centers, and transport
systems that better support tourist convenience. In contrast, small islands in Makassar
City still face challenges regarding sanitation, access to clean water, and the quality of
accommodation facilities. Some destinations in Makassar City have basic lodging and
tourist equipment rental facilities. However, they still need a lot of improvement to align
with sustainable tourism standards. This infrastructure gap also affects the attractiveness
of destinations in the eyes of international tourists, where tourists tend to prefer
destinations with more complete and environmentally friendly facilities.

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Regarding social and economic impacts, differences in tourism management strategies in

these regions also produce different effects. In Makassar City, the tourism sector
contributes to the local economy, but the economic benefits are not evenly distributed
throughout the community. There are still challenges in the equitable distribution of
benefits, especially for local communities that have not been fully integrated into a more
professional tourism system. Meanwhile, the community-based tourism model in the
Visayas has more positive economic impacts on local communities. With the active
involvement of the community in the tourism industry, they have more opportunities to
earn income from the sector, either through their own businesses or collaborative programs
with the local government. This makes tourism a sector that contributes to economic
growth and directly improves community welfare. There are several perspectives for the
improvement of governing sustainable tourism in small islands. First, increasing the
capacity and capability of local governments through training, knowledge transfer, and
adequate resource allocation will be critical. A sustainable tourism master plan must be
created, along with improved enforcement of environmental regulations. Second,
empowerment of local communities should be at the core of any governance initiative. As
such, it can be achieved through the facilitation of active participation in planning and
decision-making, the development of equitable community-based economies, and
increased awareness and education on sustainable tourism practices.

Conclusion

This research analyzes how governing sustainable tourism is implemented in small

islands in Makassar, Indonesia, and Visayas, Philippines. The study shows that Visayas
has a more advanced approach to ecotourism management. Strict regulations related to
environmental protection, a more effective waste management system, and active
community involvement in community-based tourism have positively impacted the
sustainability of tourism in the region. Whereas in Makassar City, although the number
of tourists continues to increase, tourism management still faces challenges, especially
in environmental conservation and equitable distribution of economic benefits for local
communities. In addition, infrastructure and tourism support facilities in Makassar City
still require improvement, especially in sanitation and clean water management, which
play an essential role in maintaining the attractiveness of tourist destinations. The level
of environmental awareness among local communities and tourists in Visayas is higher
than in Makassar City. Educational programs on conservation and the implementation
of community-based tourism in Visayas have increased collective awareness of
maintaining the balance of the ecosystem. Meanwhile, in Makassar City, understanding
the importance of ecotourism still needs to be improved through various training
programs and more intensive environmental awareness campaigns. Therefore, to ensure
that the growth of the tourism sector in Makassar not only has a positive impact on the
economy, ecological sustainability, and community welfare, efforts are needed to
improve environmental regulations, develop community-based ecotourism, and
optimize sustainable tourism infrastructure and facilities. Furthermore, cross-sector and
multi-stakeholder collaboration through the Pentahelix model (government, academia,
business, community, and media) can drive synergy and innovation. Using smart
technologies can help manage resources better and improve the travel experience. There
are also new ways to fund conservation efforts, like “blue finance” or tourism taxes.
These ideas provide great opportunities for better resource management and

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preservation. With a focus on developing diversified tourism products, promoting green

tourism, and investing in climate-resilient infrastructure, the small islands of Makassar
and the Visayas can build a more sustainable and inclusive tourism future. It is necessary
to conduct a more in-depth study on the most appropriate sustainable tourism policy
model to be applied in Makassar, considering local social, economic, and cultural
factors. Further research could explore the long-term impacts of tourism on small island
ecosystems, including the sustainability of natural resources and patterns of social
change in coastal communities.

Acknowledgments

We thank the editor and reviewer who have provided insight and enriched the article.
We also thank the Institute of Research, Development and Community Services of the
Universitas Muhammadiyah Makassar, through internal research grant - international
collaboration, for supporting this research.

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Authors’ Declarations and Essential Ethical Compliances

Authors’ Contributions (in accordance with ICMJE criteria for authorship)

Contribution Author 1 Author 2 Author 3
Conceived and designed the research or analysis Yes No No
Collected the data No No No
Contributed to data analysis and interpretation Yes Yes Yes
Wrote the article/paper Yes Yes Yes
Critical revision of the article/paper No Yes Yes
Editing of the article/paper No Yes Yes
Supervision No No No
Project Administration Yes No No
Funding Acquisition No No No
Overall Contribution Proportion (%) 34 33 33

Funding
Authors thank the Institute of Research, Development and Community Services of the
Universitas Muhammadiyah Makassar, through internal research grant - international
collaboration, for supporting this research

Research involving human bodies or organs or tissues (Helsinki Declaration)

The author(s) solemnly declare(s) that this research has not involved any human subject
(body or organs) for experimentation. It was not clinical research. The contexts of human
population/participation were only indirectly covered through literature review.
Therefore, an Ethical Clearance (from a Committee or Authority) or ethical obligation
of Helsinki Declaration does not apply in cases of this study or written work.

Research involving animals (ARRIVE Checklist)

The author(s) solemnly declare(s) that this research has not involved any animal subject
(body or organs) for experimentation. The research was not based on laboratory
experiment involving any kind animal. The contexts of animals were only indirectly
covered through literature review. Therefore, an Ethical Clearance (from a Committee
or Authority) or ethical obligation of ARRIVE does not apply in cases of this study or
written work.

Research on Indigenous Peoples and/or Traditional Knowledge

The author(s) solemnly declare(s) that this research has not involved Indigenous Peoples as
participants or respondents. The contexts of Indigenous Peoples or Indigenous Knowledge
were only indirectly covered through literature review. Therefore, an Ethical Clearance
(from a Committee or Authority) or prior informed consent (PIC) of the respondents or Self-
Declaration in this regard does not apply in cases of this study or written work.

Research involving Plants

The author(s) solemnly declare(s) that this research has not involved the plants for
experiment and field studies. Some contexts of plants are also indirectly covered through
literature review. Thus, during this research the author(s) obeyed the principles of
the Convention on Biological Diversity and the Convention on the Trade in Endangered
Species of Wild Fauna and Flora.
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Grassroots Journal of Natural Resources, Vol.8, No.2 (August 2025), p. 531-551 | ISSN 2581-6853 | CODEN GJNRA9
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Research Involving Local Community Participants (Non-Indigenous) or Children

The author(s) solemnly declare(s) that this research has not directly involved any local
community participants or respondents belonging to non-Indigenous peoples. Neither
this study involved any child in any form directly. The contexts of different humans,
people, populations, men/women/children and ethnic people were only indirectly
covered through literature review. Therefore, an Ethical Clearance (from a Committee
or Authority) or prior informed consent (PIC) of the respondents or Self-Declaration in
this regard does not apply in cases of this study or written work.

PRISMA (Preferred Reporting Items for Systematic Reviews and Meta-Analyses)

The author(s) has/have NOT complied with PRISMA standards. It is not relevant in case
of this study or written work.

Competing Interests/Conflict of Interest

Author(s) has/have no competing financial, professional, or personal interests from other
parties or in publishing this manuscript. There is no conflict of interest with the publisher
or the editorial team or the reviewers.

Attribution and Representation

All opinions and mistakes are the author(s)’ own and cannot be attributed to the
institutions they represent. The publisher is also not responsible either for such opinions
and mistakes in the text or graphs or images.

Declaration of the Use of AI

During the preparation of this work, the authors have not used AI to assists the script
translation and proof reading. After using this tool, the authors reviewed and edited the
content as needed and take full responsibility for the content of the published article.

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To see original copy of these declarations signed by Corresponding/First Author (on

behalf of other co-authors too), please download associated zip folder [Declarations]
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