Contextualising Antarctic tourism diversification: tourism management implications from multinational policy debates

Figures & data

Table 1. Overview of Antarctic tourism activities, encompassing a broad scope of tourism developments.

	Dimension	Scope and examples^a
		With Landings	Airborne	Flights
1	Modes of Transport	With Landings	Seaborne	Expedition cruises (<500 passengers) Sailing vessels Yachts and Mega-Yachts
			Combined air and cruise transportation	Flight-sail operations
		No Landing	Airborne	Sightseeing flights
			Seaborne	Cruise-only (>500 passengers)
2	Types of Tourism	Adventure, high-risk, extreme tourism	Packaged commercial tours	Accommodation, modes of transport, activities, etc., that often overlap with other dimensions (e.g. deep field or adventurous vessel-based activities, airborne expeditions, ski expeditions to the geographic South Pole)
			Expeditions that involve ‘firsts’ or ‘achievements’ through potentially overcoming natural, physical, mental, and psychological limitations	At least 30 Guinness World Record breakings (e.g. longest unsupported snow kite expedition in Antarctica, the youngest person to ski to the South Pole, the oldest person to complete a marathon on each continent) First Porsche ride, first balloon ride, motorcycle rides, etc.
		Land-based tourism		Expeditions, accommodations, activities, etc., that often overlap with other dimensions (e.g. tour packages with a private charter and luxury land-based accommodation, land-based trekking expeditions on foot, cycling and biking expeditions, expeditions with motorised vehicles or using skis or kites, etc.)
		Other types of tourism		Cruise and thematic cruise tourism, Dark tourism, Influencer marketing tourism, Last-chance tourism, Photojournalism, Wedding tourism, Wildlife tourism, etc.
3	Types of Activities Offered	Air-related activities		Fixed Wing and Helicopter Flights Paragliding RPAS Commercial Flights* Skydiving South Pole Fly-In
		Mountain-related activities		Abseiling Base jumping Climbing Heli-skiing Ice Climbing Mountaineering Skiing Snowboarding
		Science-related activities		Citizen Science Station visit*
		Terrestrial activities		Camping* Cross-country Skiing Cycling Extended Walk (usually over 1 km) Fat biking Ice Walk Motorised Traverse Last 1–2 Degree Expeditions Short Overnight Stays* Ski Kiting Ski Traverse Skidoo tour Sledding Snowshoeing South Pole Motorized Expeditions South Pole Ski Expeditions Zip Lining
		Water-related activities		Kayaking* Polar Plunge Remote Underwater Vehicle (ROV)* Scuba Diving* Ship Cruise Small Boat Cruising Small Boat Landing Snorkelling* Stand Up Paddle Submersible (HOV)* Surfing Swimming (short and long distance)
		Wildlife-related activities		Emperor Penguin Colony Visits* Wildlife watching
		Other activities		Day Trip South Shetland Islands Filming Overnight Stay South Shetland Islands Photography Picnic Shopping for souvenirs, sending postcards, stamping passports
		Large-scale sporting events		Marathon* At least 6 marathons and half marathons taking place (Antarctica Marathon & Half-Marathon, Antarctic Ice Marathon, White Continent Marathon & Half Marathon, Last Desert, Triple 7 Quest, World Marathon Challenge)
4	OvernightAccommodation Options on Land	Short overnight stays		Add-on activity as part of a tour package, offered by most expedition cruise companies
		Coastal multiple-night camping		Often by small expedition groups from small vessels
		Deep-field camping (usually associated with long expeditions or crossings)		At least 10 semi-permanent camps (Whichaway, Wolf’s Fang, Echo, Union Glacier, Patriot Hill, Gould Bay, The Glaciers Retreat, South Pole camp, Vinson base, Oasis guesthouse)
		Other		Permanent facilities, governmentally or non-governmentally operated (year-round or multi-season) with a primary tourism purpose
5	Tourism Organisers	Diversity of the range of actors or proponents of activities		Authorised and unauthorised expeditions Private and commercial operations
		Membership		109 IAATO members
		Specialisation		Antarctic tourism, Birdwatching tourism, Polar tourism, Wildlife/Ecology tourism, etc. General tourism (not specialised)
		Other		Company size, country from which the company is registered, group tourist size per travel, years of Antarctic operation, etc.
6	Other Non-Governmental Activities	Art projects and installations		Art projects (e.g. Antarctica Biennale)
		Educational activities		Programmes linking students to the Antarctic (e.g. Students on Ice, H41)
		Film and photography projects		Documentaries (e.g. Antarctica by BBC, ‘Three Arts in Antarctica’ by Bartosz Stróżyński)
		Other		Musical live performances, religious activities, etc.
7	Tourism Locations	Geographical Locations		Peninsula Continental – South Pole Ross Sea Day trip South Shetland Islands Deep Field Expeditions (e.g. to Pole of Inaccessibility, Last 1–2 Degree Expeditions, South Pole Expeditions, Vinson Massif)

Note: ^a Activities with an IAATO or ATCM guidelines are followed by an *; Activities described in the PVR are in italics.

Table 2. Overview of concerns related to Antarctic tourism diversification expressed in ATCM final reports.

	Dimension	Focus	Issue ^a	Source
1	Modes of Transport	Combined air and cruise transportation	Authorisation process, which could lead to unexpected gaps in the assessment of activities	Final Report XXXIX ATCM, 72, para 251
			Environmental impacts	Final Report XXXIX ATCM, 71, para 249
			Involvement of multiple CAs in the various components or segments involved in single fly-cruise expeditions	Final Report XXXIX ATCM, 71, para 249
			Potential for increased visits to certain sites	Final Report XXXIX ATCM, 71, para 249
			Safety due to increased ship traffic	Final Report XXXIX ATCM, 71, para 249
		Future development of air and cruise activities	Concerns related to logistic aspects such as the bunkering, provisioning and resupplying of vessels	Final Report XXXIX ATCM, 72, para 252
			Concerns regarding expansion, resulting in a need for larger planes, which could additionally demand the enlargement of current infrastructures and landing strips	Final Report XXXIX ATCM, 72, para 252
			Considerations related to air traffic control	Final Report XXXIX ATCM, 72, para 252
			Waste management	Final Report XXXIX ATCM, 72, para 252
		Large Vessels	Concerns related to the safety of maritime navigation	Final Report XXVIII ATCM, 169, para 5.2; Final Report XXX ATCM, 37, para 157
			Potential for undesirable environmental impacts;	Final Report XXIX ATCM, 36, para 151
2	Types of Tourism	Adventure tourism	Authorisations particularly related to adventure sport tourism activities	Final Report XXXVIII ATCM, 75, para 280
			Differences in domestic legal systems among proponents, and thus the possibility of ‘forum shopping’	AT Secretariat SP9, XXXVII ATCM, 3
			Impossibility of applying binding regulations under current domestic legal systems	AT Secretariat SP9, XXXVII ATCM, 3
			Increasing pressures on SAR resources	Final Report XXIV, 22, para 107; Final Report XLI ATCM, 40, para 88
			Increasing pressures on the environment	Final Report XLI ATCM, 40, para 88
			Interference with scientific programmes	Final Report XXIV, 22, para 107; Final Report XXXIX ATCM, 69, para 243
			Lack of definition and identification of activities belonging to this category	AT Secretariat SP9, XXXVII ATCM, 3
			Lack of legal provisions to address adventure tourism	AT Secretariat SP9, XXXVII ATCM, 3
			Need for stricter regulation of new types of tourism, in particular adventure tourism	AT Secretariat SP9, XXXVII ATCM, 3
			Risk for human life (participant and SAR teams), especially related to extreme adventure tourism	Final Report XXXIX ATCM, 69, para 243
		Land-based tourism	Differences in domestic legal systems among proponents, and thus the possibility of ‘forum shopping’	AT Secretariat SP9, XXXVII ATCM, 3
			Lack of legal provision in the Protocol to address land-based tourism	Final Report XXIX ATCM, 38, para 163
			Legal and environmental matters connected with this type of tourism	Final Report XXVII ATCM, 30, para 195; AT Secretariat SP9, XXXVII ATCM, 3
			Need for consistency of land-based tourism with the principles of the AT and the Protocol	Final Report XXVII ATCM, 30, para 195; AT Secretariat SP9, XXXVII ATCM, 3
			Need for proper definitions of land-based tourism	Final Report XXVII ATCM, 30, para 195; AT Secretariat SP9, XXXVII ATCM, 3
3	Types of Activities Offered	Activities involving multiple participants and/or permitted by different CAs	Complications arising from expeditions that contain a mix of NGO and governmental visitors	Final Report XXXVIII ATCM, 75, para 280
			Difficulty in accessing lists of denied permits or authorisations and understanding the reasons for their denial	Final Report XXXVIII ATCM, 75, para 280
			EIES’s limitations concerning relevant information regarding CA, expedition details, authorisations, information regarding permits or authorisations denied, and the updating of the NCA contact list	Final Report XXXVIII ATCM, 75, para 280
			Forum shopping and third-party flagged vessels	Final Report XXXVIII ATCM, 75, para 280
			Lack of progress in the ratification of Annex VI of the Protocol	Final Report XXXVIII ATCM, 75, para 280
			Problems related to multiple authorisation processes	Final Report XXXVIII ATCM, 75, para 280
			Problems related to the enforcement of relevant provisions within domestic legislation	Final Report XXXVIII ATCM, 75, para 280
			Quality of communication mechanisms between NCAs	Final Report XXXVIII ATCM, 75, para 280
		Large-scale sports, such as marathons	Effect on infrastructure and personnel at stations	Final Report XXXVII ATCM, 64, para 232
			Environmental impact	Final Report XXXII ATCM, 56, para 207
			Human safety	Final Report XXXII ATCM, 56, para 207
			Lack of international regulation	Final Report XXXII ATCM, 56, para 207
			Potential disruption to the function of scientists and other station activities	Final Report XXXII ATCM, 56, para 207
		New Activities	Difficulty in assessing applications	Final Report XXXVIII ATCM, 81, para 302
			Difficulty in determining participants’ safety	Final Report XXXVIII ATCM, 81, para 302
			Difficulty in regulating the types of interactions with the environment	Final Report XXXVIII ATCM, 83, para 307
			Environmental impact	Final Report XXXVIII ATCM, 81, para 302
			Lack of guidelines or information on activities that specific NCAs had not dealt with before, such as kite skiing, snorkelling, and leisure fishing	Final Report XXXVIII ATCM, 83, para 307
			Lack of information regarding risks for new activities, especially sports and adventure-related	Final Report XXXVIII ATCM, 81, para 301
			Need for comprehensive descriptions of activities	Final Report XXXVIII ATCM, 83, para 307
			Need to consider cumulative impact when assessing the range of activities proposed	Final Report XXXVIII ATCM, 83, para 307
			Potential added diversity of behaviour and interaction with the environment	Final Report XXXVIII ATCM, 83, para 307
			Potential implications of SAR operations on NAPs and personnel	Final Report XLI ATCM, 40, para 88; Final Report XLI ATCM, 40, para 88
		Risky Activities	Lack of a harmonised position across Parties, especially concerning potentially risky activities for the environment and the safety of the environment	Final Report XXXVIII ATCM, 83, para 307
			Posed risks to NAPs from potentially risky activities conducted by non-governmental organisations	Final Report XXXVIII ATCM, 81, para 302
			Possible impacts on NAP resources to assist with emergency responses	Final Report XXXVIII ATCM, 81, para 302
			Potentially risky adventure activities masked under an application as a scientific activity	Final Report XXXVIII ATCM, 83, para 307
		Station Visits	Station visits that involve multiple NCAs	Final Report XXXVIII ATCM, 75, para 280
		Unauthorised Activities	Challenge in preventing unauthorised expeditions from taking place	Final Report XXXVIII ATCM, 83, para 307
4	Overnight Accommodation Options on Land	Non-permanent, semi-permanent and permanent facilities	Environmental impacts	Final Report XXVII ATCM, 30, para 195 and Final Report XLIII ATCM, 64, para 222
			Impacts on SAR capacity of NAP	Final Report XLIII ATCM, 64, para 222
			Impossibility of applying binding regulations under current domestic legal systems	AT Secretariat SP9, XXXVII ATCM, 3
			Lack of consistency with the principles of the Treaty and the Protocol	Final Report XXVII ATCM, 30, para 195
			Lack of understanding of the terms non-permanent, semi-permanent and permanent in light of the EIA provisions	Final Report XLI ATCM, 40, para 88
			Need for proper definitions of permanent tourism infrastructure	AT Secretariat SP9, XXXVII ATCM, 3
			Possible assertion of private property rights	Final Report XXVII ATCM, 30, para 195
			Possible assertion of rights to usufructuary benefits through regular permitting	Final Report XXVII ATCM, 30, para 195
			Possible impacts on wilderness values	Final Report XXVII ATCM, 30, para 195, Final Report XLI ATCM, 40, para 88
			Possible jurisdictional issues	Final Report XXVII ATCM, 30, para 195
			Potential for abandoned infrastructure should business circumstances change	Final Report XLIII ATCM, 64, para 222
5	Tourism Organisers	Expansion of the range of actors involved	Consideration over cumulative impacts when assessing tourism activities, including those unauthorised or of non-IAATO members	Final Report XLI ATCM, 40, para 88
			Challenges regarding tour companies and/or tourist ship operations from third-party States	Final Report ATME 2004, 10, para 30
			Difficulties in addressing individuals in NAP engaging in leisure activities	Final Report XXXVIII ATCM, 83, para 307
			Diversification of proponents of activities	Final Report XXXVIII ATCM, 83, para 307
		Membership	Challenges that the presence of non-IAATO operators imply for the coordination of operations, collection of accurate tourism statistics and compliance with ATCM tourism measures	Final Report XLI ATCM, 36, para 75
			Challenges regarding tour companies that deliberately decide to operate outside the strictures of industry self-regulation	Final Report ATME 2004, 10, para 30
			How to deal with non-IAATO members	Final Report XLI ATCM, 36, para 75
		Unauthorised Activities	Difficulties in prosecuting unauthorised activities (including dealing with individuals with multiple passports; national legislation that only applied to activities organised nationally, and different levels of involvement between those who initiated an activity and those responsible for its execution)	Final Report XXXVIII ATCM, 76, para 285
6	Other Non-Governmental Activities		Potential challenges when the organiser is an international group without a clear legal address	Final Report XL ATCM, 99, para 363
			Use of another permit (e.g. ship’s permit for tourism) after refusal of activity permit	Final Report XL ATCM, 99, para 364
7	Tourism Locations		Possible conflict of interests between science and tourism	Final Report XXIX ATCM, 39, para 173
			Risk of non-native organism introduction	Final Report XVII CEP, 144, para 233

^aNCA = National Competent Authority, EIA = Environmental Impact Assessment, EIES = Electronic Information Exchange System, NAP = National Antarctic Program, SAR = Antarctic Search and Rescue.

Table 3. Policy options suggested and adopted related to Antarctic tourism diversification.

	Dimension	Focus	Policy option suggested ^a	Years ^b	Output and status ^c	Purpose of the instrument ^d
1	Modes of Transport	Aviation	Ensure that the Air Safety Resolution is applied to all aviation activities in Antarctica	2021 2022	Resolution 3 (2022) NLC: Resolution 06 (2021) and Resolution 01 (2013)	R
		Vessels	Limit the landing of persons from passenger vessels and restrict the number of passengers on shore	2006 2007 2009	Resolution 4 (2007) Measure 15 (2009) (not yet in force).	R
		Vessels	Establish a voluntary on-board observer operational framework for tourist vessels	2004 2009 2010 2011 2019 2021 2022	Resolution 9 (2021)	M
		Yachts	Develop yacht-specific guidelines	2011 2012	Resolution 10 (2012)	G
2	Types of Tourism	Adventure and Land-Based Tourism	Employ a risk-based assessment tool for authorising activities for land-based and adventure tourism*	2014	Resolution 6 (2014) adopted but broadened the application to all activities carried out in the Antarctic	G
		Adventure Tourism	Improve the exchange of information and cooperation among Parties regarding adventure tourism*	2004	Resolution 3 (2004) adopted but broadened the application to all activities carried out in the Antarctic	I
		In-field Activities	Develop a checklist to support inspections of the on-ground conduct of visitors’ activities	2010 2011 2012	Resolution 11 (2012)	G
		Land-based Activities	Develop a checklist to assist with the assessment of land-based activities	2011 2012	Resolution 9 (2012)	G
3	Types of Activities Offered	Station Visits	Advance notification, reporting, and compliance with conditions stipulated for visits to stations	1966 1970 1975	Recommendation IV-27 (1966) [effective 1968] Recommendation VI-7 (1970) [effective 1973] Recommendation VIII-9 (1975) [effective 1982]	I
4	Overnight Accommodation Options on Land	Permanent and Semi-Permanent Facilities	Prevent the construction of permanent facilities for tourism and other non-governmental activities in Antarctica	2005 2006 2021 2022	Resolution 5 (2022) Support for further discussions in an ICG	R
5	Tourism Organisers	Tour Operators and Visitors	Ensure all tourists and those conducting tourism and non-governmental activity are informed about the ATS requirements and general visitor guidelines	1970 1994 2009 2010 2011 2019 2021	Recommendation VI-7 (1970) [effective 1973] Recommendation XVIII-1 (1994) [effective 2016] Resolution 4 (2021) NLC: Resolution 3 (2011) and Resolution 3 (2019)	G
6	Other Non-Governmental Activities	Educational and Cultural Activities	Promote understanding and appreciation of Antarctic values through education and the contribution of artists and musicians	1996	Resolution 2 (1996)	I
		Educational and Cultural Activities	Promote wider public awareness of Antarctica through the development of art projects about Antarctica	2013	Resolution 5 (2013)	I
7	Tourism Locations	Site Guidelines	Develop site-specific guidelines	2003 2004 2005 and further updates	Resolution 2 (2022) and Resolution 5 (2012) NLC: R5 (2005), R6 (2006), R1 (2007), R2 (2008), R4 (2009), R1 (2010), R4 (2011), R4 (2012), R3 (2013), R4 (2014), R2 (2016), R1 (2018), R2 (2019), R3 (2021)	G
		Site Guidelines	Develop a formal checklist to aid the future review of Site Guidelines	2018 2019 2021	Resolution 4 (2021) NLC: Resolution 3 (2019)	G
		Site Guidelines	Develop an interactive mapping tool to help illustrate visitation over time for sites covered by Site Guidelines	2018 2019 2021	Map available at the ATS website	M
		Sites	Inform that visitors must not enter Specially Protected Areas and must respect designated historic monuments	1970	Recommendation VI-7 (1970) [effective 1973]	R
		Sites	Prevent tourists from landing on any new island formed by geological processes	1970	Recommendation VI-11 (1970) [effective 1973]	R
	General – Tourism, but directly or indirectly relating to tourism diversification	Competent Authorities	Develop several instruments/processes to enhance communication between CAs	2016 2017 2018 2019 2022	Permanent forum and contact list on the Secretariat website, discussion email list for NCA	I
		Compliance	Elaborate a manual of regulations and guidelines relevant to tourism and non-governmental activities	2019 2021	Material made available on the Secretariat website	I
		Compliance	Recommend all Parties to expedite approval of Measure 4 (2004) and Measure 15 (2009)	2014 2019 2022	Resolution 7 (2014), but the measure is still not in force	G
		EIEs	Improve the functioning of the EIES to provide detailed information to manage non-governmental activities	2012 and further updates	EIES updated on the Secretariat website	I
		Post-Visitor Report	Post-visit reporting and advance notification and subsequent modifications to deal with new sites and activities	1994 1995 1997 2004 2005 2019 2021 2022	Advance notice outlined in Attachment A to Recommendation XVIII-I (1994) [effective 2016] Resolution 3 (1995) Resolution 3 (1997) Resolution 10 (2021) Resolution 6 (2022) NLC: Resolution 6 (2005)	R
		Safety	Request insurance and contingency planning for tourism and non-governmental activities	2004	Measure 4 (2004) (not yet in force)	R
		Safety	Develop guidelines for insurance and contingency planning for tourism and non-governmental activities	2004 2017	Resolution 6 (2017) NLC: Resolution 4 (2004)	G
		Tourism Guiding Principles	Endorse the concept that all tourism activity is guided by the principle that tourism should have no more than a minor or transitory impact in the Antarctic	2007	Resolution 5 (2007)	G
		Tourism Guiding Principles	Draft a statement of accepted tourism practices	1972 1975 1977 1979	Recommendation VIII-9 (1975) [effective 1982] Recommendation X-8 (1979) [effective 1987]	G
		Tourism Guiding Principles	Develop a strategic vision of tourism*	2008 2009 2010 2015 2017	Resolution 7 (2009) adopted. However, Parties expressed that its current form does not meet the expectations for a ‘vision’. Discussions took place again in 2017, with no further actions.	G

^a* = The proposal was adopted, but the focus differed from the proposed initially.

^aYear = Years in which the policy option was deliberated in plenary, irrespective of whether it has been implemented.

^bLegally binding instruments (bold); NLC = ‘No longer current’; Measure, ‘text which contains provisions intended to be legally binding once it has been approved by all the Antarctic Treaty Consultative Parties’; Resolution, ‘hortatory text adopted at an Antarctic Treaty Consultative Meeting’; Decision, ‘a decision taken at an Antarctic Treaty Consultative Meeting on an internal organisational matter will be operative at adoption or at such other time as may be specified’; Recommendation, ATCM output before 1995, following Article IX(4) of the AT.

^cE = Economic and fiscal means; G = Guide; I = Inform or communicate; M = Monitor or measure; R = Regulate or control; S = Standardize a process or procedure.

Table 4. Policy options suggested but not adopted related to Antarctic tourism diversification.

	Dimension	Focus	Policy option suggested	Suggested or introduced by ^a	Years	Purpose of the Instrument ^b	Summary of the discussions
1	Modes of Transport	Maritime Transport	Formalise the role of IAATO in managing maritime traffic in the Antarctic Peninsula region	UK	2007	R	Many Parties did not feel it was appropriate to delegate the responsibility for regulating tourist maritime traffic in the Antarctic Peninsula area to the industry.
		Vessels	Require ice-strengthening to a minimum standard of ICE-1C or equivalent for all commercial tourist vessels	NZ	2004	R	While there was general agreement on the need for requirements regarding ice classification, there was no consensus on how these matters might be taken forward.
		Yachts	Preparation of denied lists of motor-sailing yachts that violate the main provisions of the Protocol during their voyages	RU	2017	R	The Meeting reaffirmed the need to keep working jointly on these complex issues through the Competent Authorities Sub-Forum and at ATCM XLI – but discussions stopped.
2	Types of Tourism	Adventure Tourism	Make permits for adventure expeditions compulsory and not merely voluntary	AU	2003	R	The Meeting agreed to create a unified WG of Experts before ATCM XXVII to discuss the matter. The focus changed from permits to legally binding regulation.
		Adventure Tourism	Legally binding regulation for adventure tourism, including a series of requirements for such activities	UK	2004	R	Not approved, and the discussion stopped.
		Adventure Tourism (+)	Develop a new legally binding ‘code’ for adventure tourism and non-governmental activity	RU	2008	R	The discussion did not get traction.
3	Types of Activities Offered	Camping	Develop guidelines for coastal camping	US/NO US/NO US/CA	2012 2014 2019	G	CEP would undertake intersessional work on coastal camping, and the issue would be addressed again in ATCM XLIII – but discussions stopped.
		Camping	Include explicit statements on short overnight stays on Site Guidelines	US US/CA	2012 2019	G	Same as above.
		Large-scale sporting events	Define measures to restrict or control large-scale events, such as marathons	CH CL (ICG) CL (ICG)	2009 2010 2014	R	An ICG was established, intending to present a draft document and Resolution to the ATCM XXXIII. Still, the information gathered was insufficient to produce a draft Resolution.
		Station Visits	Develop guidelines for visits to stations	UK/AU/PE AR -	2005 2010 2021	G	No agreement was reached regarding the guidelines – the Meeting agreed to encourage Parties to prepare policies related to visits at Antarctic stations and keep the Meeting and IAATO informed to ensure broader access to them.
		UAVs/RPAs	Ban the recreational use of UAVs/RPAS	NL -	2017 2018	R	ICG discussions did not resolve the matter.
		Tourism Activities (General)	Develop a criteria to deny authorisation for proposed activities	NL (ICG)	2013	R	Proposal to facilitate intersessional preparations for a discussion on experiences and challenges identified by CA concerning diverse types of tourism and non-governmental activities at ATCM XXXVII – but discussions stopped.
		Tourism Activities (General)	Develop a framework to underpin greater consistency of standards for new or novel activities	UK/NL UK	2019 2021	S	CEP would undertake intersessional work on the framework and encourage informal consultations, with a view to submitting a WP to ATCM XLIV – which did not happen.
		Tourism Activities (General)	Ensure that Site Guidelines are as specific as possible in about which activities are permitted or not at each site	NL/UK DE (ICG)	2019 2021	G	It was noted that reaching consensus could prove challenging due to the diverse positions and views on some of the outstanding issues relating to Site Guidelines.
		Tourism Activities (General)	Harmonisation of authorisation processes across NCAs	IAATO	2022	S	Support for efforts to harmonise authorisation processes as far as possible within differing national systems and enhance discussions using the online Forum. However, no harmonisation process was implemented.
4	Overnight Accommodation Options on Land	Permanent and Semi-Permanent Facilities	Adopt binding regulations prohibiting permanent and semi-permanent facilities	NZ AU /NZ /DE NZ/AU NL NL (ICG)	2004 2005 2006 2021 2022	R	Some Parties requested a more in-depth analysis, and the issue would be revisited ATCM XXIX. Consensus could not be reached, and the Meeting decided not to establish an ICG but address the proposal again at ATCM XXX – but discussions stopped. An ICG group was established at ATCM XLIII on permanent facilities, but legally binding regulations were not adopted.
		Permanent and Semi-Permanent Facilities	Adopt a moratorium on permanent land-based tourist infrastructure	DE/FR	2008	R	No consensus. The discussion would be used as a basis for further consultations with Parties leading up to ATCM XXXII – but discussions stopped.
		Permanent and Semi-Permanent Facilities	Require all permanent land-based facilities to be included within and under the control of a NAP to ensure they were covered under the jurisdictional framework provided in Article VIII of the Treaty	NZ	2008	R	The discussion indicated that the time was not yet ripe for a decision, and the draft Resolution was withdrawn. The matter was expected to return at ATCM XXXII – but discussions stopped.
5	Tourism Organisers	Tour Operators	Require ice-strengthening vessels to carry a qualified ice-pilot	NZ	2004	R	While there was general agreement on the need for requirements regarding ice classification and the crew’s experience, there was no consensus on how these matters might be taken forward.
		Tour Operators	Develop guidelines related to shipping provisions for Non-Treaty Flagged Vessels	UK	2004	G	Adoption of shipping guidelines was exclusively within the competence of the IMO, and consideration of the proposed Resolution was deferred.
		Tour Operators	Proposal of an accreditation scheme for Antarctic tour operators	AU UK (ICG) IAATO	2004 2005 2006	S	IAATO would present a proposal on accreditation to ATCM XXIX for detailed consideration. Further information on the scheme was expected at ATCM XXX – but discussions stopped.
7	Tourism Locations	Site Guidelines	Implement seasonal considerations into Site Guidelines	NL/UK	2019	G	Seasonal considerations have not yet been taken into consideration in Site Guidelines.
		Sites	List or define areas of Special Tourist Interest	- - - - FR FR	1972 1975 1977 1981 2005 2006	R	Recommendation VIII-9 was adopted, but its annexes (To be discussed at the IX ATCM) were never filled up/reviewed. Owing to lack of time for full discussion, the matter was referred to ATCM X, then XI, then XIII. The issue was brought up again at ATCMs XXVIII and XIX – no action was taken.
		Sites	Establishment of a multiple-use category of Antarctic Protected Area	SCAR	1989	R	Recommendation XV-11 (1989) did not enter into effect and is no longer current [Decision 1 (2007)].
		Sites	Constrain areas to which tourists may visit to reduce the risk of introducing non-native organisms	DE	2014	R	While highlighting the risks associated with non-native species and their relationship with tourism, it was decided that further discussion and reflection were required.
		Sites	Limit tourism and non-governmental activities to sites under Guidelines for Site Visits only	FR-	2011	R	Most Parties agreed that the submitted proposal raised some important questions that needed further discussion in the future – but discussions stopped.
	General – Tourism, but directly or indirectly relating to tourism diversification	Authorisation Process	Develop a complementary mechanism for centralising tourism and non-governmental activity authorisation	FR-	2008	M	Parties would comment on the proposal intersessionally – but discussions stopped.
		EIA	Improve EIA	AR UK/NL	2004 2022	R	The Committee agreed to progress this issue through informal discussion during the intersessional period.
		Growth	Taxation system for tourists travelling to the Antarctic	FR-	2002 2016	E	The Meeting decided to discuss the issue in the Legal and Institutional Matters and the Operational Matters WGs. The topic was mentioned again in 2016.
		Growth	Levying an administrative fee on tourism operators to support environmental monitoring work	FR UK/NL	2002 2019	E	The Meeting agreed that further discussions were needed to better understand how fees could be collected, administered, and used. Interested Parties were encouraged to have further informal intersessional consultation and to submit papers to ATCM XLIII containing concrete proposals describing possible systems for levying fees and administering resulting funds.
		Monitoring	Develop a centrally managed database on tourism and non-governmental activities in the Antarctic	AU AU - CEP Study -	2003 2004 2008 2012 2017	M	All Delegations welcomed the idea of creating a WG or ICG on the database and reporting back. An ICG was established. The Meeting did not reach consensus on what steps the Secretariat should take concerning a centralised depository of tourist sites and activities, and agreed that Parties should reflect through the following intersessional period and be prepared to address it again at ATCM XLI – but discussions stopped.
		Monitoring	Develop a methodology to assess the sensitivity of sites used by visitors	CEP Study - NZ-AU-NO-UK-US - NZ-AU-NO-UK-US-IAATO NZ-AU-NO-UK-US-IAATO -	2012 2013 2014 2016 2017 2019 2022	M	Several Parties suggested that the CEP would be best placed to determine the most appropriate method. In 2014, the Committee encouraged interested Members to continue with the planned work, taking account of additional methodologies as appropriate, and report back. A further update was presented in 2017, with a plan to revise the proposal methodology and then conduct ‘desktop’ testing to trial it and report on its process to CEP XXIII. The discussion of the trial methodology was postponed to CEP XXV (2023).
		Monitoring	Establishment of monitoring programmes to assess the potential and cumulative environmental impacts of tourism	- - AU - CEP Study - NL/UK ES/EC/US	1995 1996 2004 2009 2012 2013 2019 2022	M	There was general agreement on the importance of developing programmes to assess impacts. Still, the Meeting noted the challenges associated with establishing strategic long-term monitoring, including the design of monitoring schemes, spatial and temporal scale questions, funding, access to monitoring locations, and coordination across Parties and projects.
		Strategic Approach	Develop a strategic approach to manage tourism (and further operationalise the principles described in Resolution 7 (2009))	NL/UK NZ/UK/NO/NL NZ/IN (ICG) NZ UK/US	2011 2015 2016 2017 2018	G	Some Parties noted concern that the items identified raised several new issues requiring further reflection and discussion before the Meeting could endorse them. The Meeting welcomed further discussion on mechanisms to give effect to the General Principles on Antarctic Tourism at ATCM XLI – but discussions stopped.
		Tourism Annex	Proposals for a future tourism Annex to the Madrid Protocol	CL FR/CL/IT CL/FR/DE/IT/ES FR FR	1990 1991 1992 2002 2003	R	A number of Delegations considered that a new Annex to the Protocol concerning regulation of tourism and non-governmental activities was not required.

^aCountry codes follow ISO 3166; (-) = the topic was discussed, but the Final Reports do not disclose country names.

^aE = Economic and fiscal means; G = Guide; I = Inform or communicate; M = Monitor or Measure; R = Regulate or Control; S = Standardize a process or procedure.

Figure 1. ATS final reports - tourism diversification policy options discussions and instruments.

Table 5. Established ICGs related to tourism.

Year	Meeting	ICG topic	Submitted by
2004	ATCM XXVII – CEP VII	Development of a database on tourism and non-governmental activities	Australia
2005	ATCM XXVIII – CEP VIII	Accreditation scheme for Antarctic tour operators	United Kingdom
2006	ATCM XXIX – CEP IX	Site guidelines for visitors to Antarctica	United Kingdom
2008	ATCM XXXI – CEP XI	Issues concerning passenger ships operating in Antarctic waters	Norway
2009	ATCM XXXII – CEP XII	Issues concerning passenger ships operating in Antarctic waters (continuation)	Norway
2010	ATCM XXXIII – CEP XIII	Marathons and other large – scale sporting activities in Antarctica	Chile
2011	ATCM XXXIV – CEP XIV	Revision of environmental elements of Recommendation XVIII-1	Australia
2011	ATCM XXXIV – CEP XIV	Supervision of Antarctic tourism	Argentina
2012	ATCM XXXV – CEP XV	‘Outstanding Questions’ on Antarctic tourism	Netherlands
2012	ATCM XXXV – CEP XV	Supervision of Antarctic tourism (continuation)	Argentina
2013	ATCM XXXVI – CEP XVI	Information exchange and the environmental aspects and impacts of tourism	New Zealand
2013	ATCM XXXVI – CEP XVI	Increasing diversity of tourism and other non-governmental activities in Antarctica	Netherlands
2014	ATCM XXXVII – CEP XVII	Marathons and large-scale sporting events held in Antarctica (continuation)	Chile
2016	ATCM XXXIX – CEP XIX	Developing a strategic approach to environmentally managed tourism and non-governmental activities	New Zealand and India
2018	ATCM XLI – CEP XXI	Develop guidelines on the environmental aspects of the use of Unmanned Aerial Vehicles (UAVs)/Remotely Piloted Aircraft Systems (RPAS) in Antarctica	Germany
2021	ATCM XLIII – CEP XXIII	Strengthening the existing guidance for visitors to Antarctica – Proposal to adopt updated General Guidelines for Visitors to the Antarctic	Germany
2021	ATCM XLIII – CEP XXIII	Voluntary on-board observer operational framework for tourist vessels operating within the Antarctic Treaty area	France and Argentina
2021	ATCM XLIII – CEP XXIII	Post-Visit Reports	Argentina
2022	ATCM XLIV – CEP XXIV	Permanent facilities for tourism and other non-governmental activities in Antarctica	Netherlands