The Role of Community Empowerment: Norms and Obligation in the

Development of Tourism on Bunaken Island

Jufrina Mandulangi

, Benny Irwan Towoliu

and Treesje Lusje Runtuwene

Department of Business Administration, Politeknik Negeri Manado, Manado, Indonesia

Department of Tourism, Politeknik Negeri Manado, Manado, Indonesia

Department of Accounting, Politeknik Negeri Manado, Manado, Indonesia

Keywords: Community Empowerment, Norms and Obligation, Tourism Development.

Abstract: The success of a tourist destination cannot be separated from the role of the local community involved in it.

However, sometimes people are only used as spectators, and cannot get benefit from tourism. The success

of Bunaken as a National Marine Park, which is known among world diving lovers is inseparable from the

role of local communities who support and maintain this tourist destination. The purpose of this study was

to analyse the role of the norm and obligation-based community empowerment in the development of

tourism on Bunaken Island. The case study methods carried out were observation, interviews and

documentation directly in the field. The data source is the selected informants in the snowball model.

Empirical findings show that community empowerment has developed as ethical norms that have to be

broken down to be part of wisdom, while this is still constrained due to the lack of knowledge of the local

community. Since community empowerment is an ongoing process, it is hoped that this will be overcome.

1 INTRODUCTION

Development of tourist destinations is inseparable

from the role of local communities involved in it.

Destinations can be established if indigenous

elements contribute to them. However, a

compilation of no support from the community will

not be developed (Chen, & Raab, 2012). Many cases

that occur at this time which occurred at the

beginning of developing well from the local

community, but in the midst of the conflict there was

a trip, the destination expansion declined, no more

tourists visited, the infrastructure was damaged/left

there was nothing to see and repair and dispose of.

There are also goals that initially developed but

remained stagnant because people did not need to

know what, how to consolidate and translate.

Because in some phases people oppose and do not

care anymore, depending on apathy, this will

eventually die.

The success of the destination requires the

involvement of the community because the

community is the legitimate owner of natural

potential. Without community involvement,

whatever objectives might be there, the destination

will not develop well. The fact is that the community

is very empowered in tourism development (Saufi et

al. 2014). At present, the empowerment of local

communities in developing countries is still lacking,

because the pattern of comfort is still more than

natural and economic capital such as technology and

management. Many local wisdoms that are owned

by the general public are marginalised, in that it is

social capital as a basic building called the

community.

North Sulawesi has considerable tourism

potential, namely marine tourism. One of the most

famous tourist destinations in the world is diving

tourism, which lies in the Bunaken National Park

Region. The development of the tourism industry in

the region has launched work opportunities that lead

to improving the welfare of local communities. In

the framework of social-based community

empowerment it is necessary to study the social

capital in the community on Bunaken Island which

is the main door of Bunaken National Park and also

as a centre for the development of the tourism

industry. How to involve the parties in the

empowerment and development activities that have

been carried out and what types of empowerment of

local communities as well as the interests of

coordination between the parties involved in

Mandulangi, J., Irwan Towoliu, B. and Lusje Runtuwene, T.

The Role of Community Empowerment: Norms and Obligation in the Development of Tourism on Bunaken Island.

DOI: 10.5220/0010686800002967

In Proceedings of the 4th International Conference of Vocational Higher Education (ICVHE 2019) - Empowering Human Capital Towards Sustainable 4.0 Industry, pages 451-457

ISBN: 978-989-758-530-2; ISSN: 2184-9870

451

empowering the community on Bunaken Island are

the main concerns. Based on researchers’

observation, one of the aspects of local community

empowerment, which often runs optimally in the

community on Bunaken Island, is the empowerment

of social capital norms and obligations. Indeed, this

aspect has been carried out, but not maximally, so it

needs to be improved. For example, norms of

business in the scope of a tourism business where

the rules are enforced may not sell similar souvenir

items, and then the guide should remind tourists not

to fish in the core zone (conservation), while the

obligation, for example, every community who earns

a living on the beach must be involved in beach

cleaning activities. These aspects seem simple, but

they have a devastating effect on the development of

tourism on Bunaken Island. The aim of the study

was to examine the process of empowering local

communities based on social capital (norms and

obligations) in the context of tourism development

on the Bunaken island.

2 LITERATURE STUDY

Community Empowerment Based on Social Capital

Empowerment emphasises that people will acquire

sufficient skills, knowledge and power to influence

their lives and other people’s lives of concern,

(Parsons et al., 1994). Meanwhile, community

empowerment is an economic development concept

that summarises social values. Etymologically,

social capital has an understanding of capital owned

by the community in community empowerment.

This capital is a combination of something material

and non-material. Material has meant about

ownership related to financial assets owned, while

non-material tangible capital has mutual trust and

gathering system (togetherness system) in a society,

(Bessette et al., 1957).

Furthermore, it is said that social capital is

mainly related to the values of a network (social

network) that binds certain people (who usually have

certain similarities, such as the similarity of work,

residence, ethnicity, religion and so on) and are

bridging between different people, with a norm of

reciprocity. Social capital places more emphasis on

group potential and patterns between individuals in a

group and between groups with space for attention

to social networks, norms, values and beliefs to

others who are born to group members and become

group norms. The essence of social capital is how

the ability of people in an ethnic group to work

together to build a network to achieve the goals

expected together by forming a unified whole and

interconnected with one another, can influence both

individually and in groups in the community itself.

2.1 Norms & Obligation

Norms, mean: standards, models, patterns,

examples, leading examples, which will or should be

followed (Neufeldt 1988). Thus, the norm is a

standard or model, a pattern, an example that leads a

person or a community group, where the norm must

be followed or implemented. As social capital,

norms are a standard or model that must be followed

or exemplified by society, because those norms will

lead them to behave according to what the

community should do. Fukuyama formulates social

capital by referring to “informal norms that support

cooperation between individuals and capabilities that

arise from the prevalence of trust in a society or in

certain parts of society. Social capital can facilitate

economic expansion to a greater extent if supported

by a broad radius of trust. Whereas Putnam

formulates social capital by referring to the

characteristics of social organisations, such as

networks, norms, and beliefs that facilitate

coordination of cooperation for something whose

benefits can be shared (mutual benefits). Social

capital in the form of horizontal community

structures (which later gave birth to horizontal

associations) plays an important role in supporting

economic progress.

Norms consist of understandings, values, hopes

and goals that are believed and carried out jointly by

a group of people. Norms can be derived from

religion, moral guidelines, and secular standards as

well as professional codes of ethics. Norms are built

and developed based on the history of past

cooperation and applied to support the climate of

cooperation. Norms can be pre-conditions or

products of social trust. Norms in social capital can

be said as a set of rules that are expected to be

obeyed and followed by the community in a

particular social entity. These rules are usually

institutionalised, not written but understood as a

determinant of good behaviour patterns in the

context of social relations so that there are social

sanctions given if they violate. Social norms will

determine the strength of relationships between

individuals because it stimulates social cohesiveness

that has a positive impact on community

development. Therefore, social norms are referred to

as one of social capital.

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Whereas the obligation is interpreted as an

obligation, or a contract that is binding, a promise, a

moral responsibility; a task that is officially or

socially charged / forced; something which someone

is bound to do according to a contract, promise,

moral responsibility; a binding force of a contract or

promise, and so on; a condition or fact of

circumstances owing to another person or the

kindness of others, or services received; a kindness

or service; legally constitutes an agreement or task

in which a person is obliged to be legally bound to

pay for or perform services or benefit others; or ties,

contracts or approval documents. Neufeldt, (1988)

mention a bond or obligation is something that binds

a person or a society to do as a necessity of moral

responsibility both formal obligations and social

obligations. Social capital describes everything that

makes society allied to achieve a common goal on

the basis of togetherness, and in it is bound by

values and norms that grow and are obeyed,

(Dasgupta, & Serageldin, 1999). The dimensions of

social capital are inherent in the structure of social

relations and social networks in a society that creates

a variety of social obligations, creates a climate of

mutual trust, brings channels of information, and

sets norms, and social sanctions for members the

community (Colleta, & Cullen, 2000).

3 METHODS

This research is in the qualitative form, using a case

study method. The technique of collecting research

samples is to use “Snowball Sampling. This is done

because the small number of data sources has not

been able to provide complete data, so looking for

someone else who can be used as a data source,

(Sugyono, 2006). The research informants included:

Manado City Tourism Office, Environment Agency,

Manado City Marine and Fisheries Service, North

Sulawesi Provincial Social Service, Manado Public

Works Service, Bunaken National Park Office,

Local Tourism Entrepreneurs Association, Bunaken

Community Care Forum and Local Communities. In

the process of collecting data, the researchers use

structured interviews using written questions

(interview guides) that are given to informants to

work on their own within the time limit specified by

the researcher as well as using and focused

interviews or in-depth interviews, with data analysis

procedures based on interactive modes, which is

carried out continuously which includes three stages,

namely: (1) data reduction; (2) data display and (3)

conclusion drawing.

4 RESULTS

Based on the results of the study, information was

obtained about the process of empowering local

communities based on social capital; norms and

obligations in developing tourism potential in

Bunaken Island which has been reduced and verified

as follows:

4.1 Norms

The government programs of socialisation,

counselling, and fostering of community

empowerment in terms of norms, namely about the

norms of business organisations, relations between

business organisations and tourism. The government

has socialised, fostered, directed, guided and

regulated the behaviour of the community both

individually and in groups in accordance with

prevailing norms as agreed upon to be followed

from the results of the deliberations and consensus

together. The government is also assisted by

religious leaders, so that community behaviour is in

accordance with religious norms.

Constraints faced are group

members/communities who careless and often

ignore them. The consequence is that members who

do not comply with business norms are enforced, the

members of this business will be excluded from the

business organisation so that there is always regular

monitoring and evaluation.

The impact of empowerment from the norm

aspect on the community of Bunaken Island is the

increasingly visible cohesiveness in individual and

group relations in the Bunaken community. In

addition, it has an impact on cleanliness, and the

development of the tourism potential of Bunaken

Island, as well as the increasing economic

community as a result of the community both

individually and in groups adhering to the prevailing

norms.The result of empowerment on the norm

aspect is that the community of Bunaken Island

knows, and develops in the knowledge of prevailing

norms, becomes skilled in carrying out norms,

develops in a positive attitude towards norms,

increasingly has the capacity as a society that lives

according to the norm.

4.2 Obligations

The government programmed outreach, counselling

and guidance as well as implementing community

empowerment in terms of obligations; namely about

the obligations of the community, in relation to

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453

business organisations, empowerment and tourism

programs, including obligations to the government

(payment of levies, taxes), social groups (social

work in the form of SEA, social donations), and

business organisations (attending meeting, sharing

mutual benefits). Relevant government agencies and

non-governmental organisations (NGOs) alternately

conduct socialisation and counselling.

It was found that some people were reluctant to

pay retribution for activities or programs managed

by the Local Tourism Entrepreneurs Association.

The attitude of the community is a barrier to the

smooth running of the work of the Local Tourism

Entrepreneurs Association. There are also people

who are reluctant to carry out the “Coastal

Cleaning” (Sapu Laut) activities, namely

cooperation activities in mutual cooperation in sea

cleaning. The attitude of the community often

hampers the smooth running of the sea. Some people

are reluctant to carry out these obligations.

The impact of this empowerment is that public

awareness to improve hygiene has increased as a

result of empowering aspects of obligations, training

has increased as a result of the empowerment of

aspects of obligations, Bunaken Marine Park

concerns have increased as a result of

empowerment, economic improvement as a result of

obligation empowerment, and cohesiveness. In

addition to regional cash as an impact of obligation

empowerment.

The results of empowerment are knowledge, skills,

attitudes of the community about the obligation to

pay retribution, taxes, conduct social services, attend

meetings for members of business organisations,

implement and become marine cleaners in the

Bunaken National Park Area.

5 DISCUSSION

5.1 Norm

In the perspective of empowerment, the government

programs socialisation, then counselling, training,

but is further developed by directing, guiding and

regulating community behaviour in accordance with

applicable norms. This is an empowerment strategy

step in the formal legality approach. Community

empowerment is in terms of norms; i,e the norms of

business organisations, relations between business

organisations and tourism.

According to Putnam, social capital refers to

relationships between individuals, social networks

and norms of trustworthiness and mutual relations

that emerge from them. Thus, existing norms and

births of society are social capital that shape and

regulate people’s behaviour and in turn, give birth to

networking and trust.

In the perspective of human capital, the people

of Bunaken Island know the prevailing norms,

become skilled in carrying out norms, develop a

positive attitude towards norms, and behave

increasingly normatively, have more capacity as a

society that lives according to the norm. So, the

government develops knowledge and attitudes about

norms, so that people behave normatively because it

appears that the attitude of the community develops

to become more positive towards the prevailing

norms, the norms that the government empowers the

local community in the Development of Tourism

Potential on Bunaken Island are applicable norms

including business norms, norms relating to

community empowerment activities, social norms /

social life, and religious norms. For example, in a

business norm, it is not permitted to sell the same

type of sale as that of other people in the same

location.

Dasgupta, & Serageldin, (1999) social capital

describes everything that makes society allied to

achieve a common goal on the basis of togetherness,

and it is bound by values and norms that grow and

obey. In order to empower local communities, the

guidance of existing norms is needed. The

implication of norm building in society is shown by

Colleta, & Cullen, (2000) opinion, that social capital

is inherent in the structure of social relations and

social networks in a society that creates a variety of

social obligations, creates a climate of mutual trust,

brings information channels, and sets norms, and

social sanctions for members of the community.

Thus, it is clear that community behaviour needs

to be regulated by norms that are in accordance with

the situation and conditions of the local community,

how the arrangement requires individual and

specific approaches according to the life context of

the community. The government does not work

alone but involves elements in society, such as

NGOs and religious leaders. This was revealed from

the findings of research data and observations of

researchers, as stated by the informants.

Similarly, the capacity of the community to

develop in terms of norms both in terms of carrying

out business individually or in groups and in

carrying out daily life, especially in the context of

developing tourism potential. In the social capital

perspective, the process of community

empowerment in the norm aspects involves relevant

agencies and NGOs in an effort to work together. In

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this case, the government also empowers NGOs

involved in community empowerment. As one of the

pillars of social capital, the norms must grow in

people’s behaviour, especially the norms that apply

in the community concerned so as to produce trust as

belonging to the community itself.

According to Fukuyama (t,t), social capital

consists of three parameters, i.e., trust, norms and

networks. Trust is an expectation that grows in a

society that is shown by the existence of honest,

orderly behaviour, and cooperation based on shared

norms. Social trust is an application of this

understanding. Colleta and Cullen, (2000) mention;

there are three pillars of social capital owned by a

community group that needs to be empowered and

developed, in various activities whose results can be

used as adhesive and unifying communities in the

rules agreed upon in the organisation that enable

community members to gain access to resources.

Social capital has an important component, which

active involvement and social trust that are outlined

in three critical pillars, I,e: (1) Trust, (2) Social

Networking, (3) Social Norms.

Community empowerment-based on social

capital in norms has an impact on the cohesiveness

of society that is getting stronger, both in individual,

group and business group relationships. In the

tourism perspective, norms must be developed so

that normative behaviour appears, not just shows

clutter. The order caused by normative behaviour

will give respect to other people’s respect for society

and respect the existing order, especially tourism on

the island of Bunaken. In addition, it has an impact

on cleanliness, and the development of the tourism

potential of Bunaken Island. In the framework of

developing economic aspects, norms must be upheld

for the achievement of empowerment goals,

especially by those people who increase

economically, their tourism potential is regularly

organised because their society behaves according to

the prevailing norms.

Implementation of norms consistently, especially

business norms, will have an impact on the strength

of the economic system in society. Conversely, if the

community does not learn consistently and is firm in

carrying out the norms, then the fragility of the

economic system occurs, and it will cause

difficulties for the community itself to develop its

economy. According to the research conducted by

Pontoh (t,t), related to the context of empowering

fishing communities, social capital in the form of

norms (trust, reciprocity), and other social norms

will become an adhesive tool for relations and

interactions in society. His research results support

this research, confirming that, social capital norms

much help the community in terms of the tightness

of relations and order in the social order, even

tourism potential can be developed.

5.2 Obligations

In the perspective of government empowerment

program socialisation, then counselling, training on

community obligations is a standard pattern of

empowering the local community of Bunaken

Island. Obligations as one of the pillars of social

capital, intended in community empowerment, are

not just for people fulfil their obligations, but as

learning in order to increase participation and

concern for togetherness in community, nation, state,

and environmental preservation, especially the

potential of tourism in the Bunaken National Park

which incidentally is the environment and source of

life of the people on the island of Bunaken.

The government and NGOs program realise

empowerment programs by socialising, conducting

counselling, and training skills on government

obligations (payment of levies, taxes), social groups

(for example, social work, social contributions), and

business organisations (for example, attending a

meeting, sharing mutual benefits). Government

agencies take turns in socialising. In reality, there

are obstacles which are common ones in the

empowerment process, which is the attitude of some

people who are reluctant to fulfil their obligations.

But empowerment carried out has had a significant

impact and results in terms of behaviour fulfilling

the demands of obligations both in relation to the

government, business organisations, as well as local

communities.

In the human capital perspective, empowerment

carried out by the government has developed the

knowledge, skills, attitudes, and abilities of the

community. People have become more aware of

their responsibilities as citizens who must take

responsibility for taking part in the development and

maintenance of the environment, citizens who must

fulfil the obligation to contribute to the development

of the nation and state through paying taxes, both

individually and in groups.

In the social capital perspective, the

empowerment of social capital-based obligations to

the community of Bunaken Island is one of the

empowerment approaches that is effective and has a

good impact on the life of the community itself,

because fulfilling the obligations that must be

fulfilled by the community has a positive impact and

benefits to the community itself.

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455

The critical implication of empowering social

capital in the element of obligations is that the

dimensions of social capital are inherent in the

structure of social relations and social networks in a

society that creates various social obligations,

creates a climate of mutual trust, brings information

channels, and sets norms, and social sanctions for

members of the community, Colleta and Cullen,

(2000).

Empowerment in perspective, Tourism-based

social capital empowerment obligations to the

community, must be developed so that obedient and

responsible behaviour becomes a daily behaviour of

the community. Such behaviour clearly impacts on

the development and maintenance of tourism

potential. Because if the people of Bunaken Island

behave obediently and are responsible for their

obligations, then Bunaken Island as a tourist

attraction will be maintained, maintained cleaned,

and in turn the impact of such behaviour is that trust

develops, Bunaken Island itself will still be

preserved, and provide benefits to the people of

Bunaken and the world of tourism in general.

In the perspective of economic development,

social capital-based obligations of the community

must also be developed, so that respectful and

responsible behaviour becomes a daily behaviour of

the community. Because by fulfilling the obligations

of the government, such as paying taxes from the

sale/business, the regional cash increases so that the

government can continue the process of

empowerment with funding from the regional

treasury. Fulfilling sea hygiene obligations that are

carried out simultaneously with the sale of marine

waste, it can increase the income level of the

community. Thus, the economic value of

empowerment becomes significant.

Under the research of Coleman, (1990), fulfilling

the obligations in community empowerment will

later help increase community economic

empowerment to become fairness. This research

supports Supriaty’s (2012) research, where the

economic development of the community of

Bunaken Island is inseparable from empowerment

carried out by the government, where the element of

bonds is one of the elements of empowered social

capital. If any should be placed before the references

section without numbering

6 CONCLUSION

Empowerment of local communities in Bunaken

Island is a government effort to realise

empowerment programs in coastal / island

communities with low economic status, as well as

closely related to efforts to develop tourism potential

on the island. This empowerment has a dual

purpose, i.e. increasing the economic standard and

developing tourism potential. Norms are one of the

three main pillars of social capital (the other two are

networking and trust). In empowering the local

community of Bunaken Island, these norms are in

addition to the norms of the government, norms of

business organisations, traditional norms of society

that are mutually agreed upon in consultation. The

implementation of norms has had an impact on the

regularity and increased economic capacity of the

people of Bunaken Island. Thus, improving

normative behaviour is essential in order to

empower the community, especially the poor and

low educated. Because people who live in this level

have a tendency to be less obedient to the norm

because they try to get out of economic difficulties.

The result of this empowerment is the development

of community human capital in terms of knowledge,

skills, abilities, attitudes, and capacities. Similarly,

social capital is related to the development of the

norms of the community. The tourism potential is

growing, like the economy of the community. Even

though there are still obstacles, because

empowerment is an ongoing process, it is hoped that

the obstacles that occur can be overcome.

The government also empowers the local

community of Bunaken island based on social

capital obligations is an effort to foster and develop

compliance behaviour, loyalty and responsibility of

the community. Community obligations include

obligations to the government, and business

organisations. The empowerment of social capital

has built community trust of NGOs and the

government to continue the empowerment process

for the people of Bunaken Island. The result of this

empowerment is the development of community

human capital deals with knowledge, skills, abilities,

attitudes, and capacities. Likewise, social capital in

terms of developing obligations of the community.

The tourism potential is also growing, like the

economy of the community. Even though there are

still obstacles, because empowerment is an ongoing

process, it is hoped that the obstacles that occur can

be overcome

ACKNOWLEDGEMENTS

The author highly appreciated to the State Polytechnic of

Manado which funded this research

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