The Content and Structure of Tourism and Public Policies: A Temporal Analysis of Stability and Change

Significant shifts in policy agenda and priorities may occur when exogenous and discontinuous macro-level events such as disease outbreaks, political transformations, and abrupt developments in visitor markets transpire. Such swings can be considerably challenging not only for policy-makers and decision-makers but also for stakeholders, especially when policy areas like employment, quality of life, housing, health, and education are weighed against growth and development considerations for hospitality, tourism, or other sectors. In extreme cases, policy swings can exacerbate social conflicts and cause commensurate disruption. Using the Hong Kong and Macao Special Administrative Regions of China as pooled comparative cases of policy-making, this study examines the content and structure of tourism-related and general policies across a 20-year pre-COVID period, how the different policy areas evolved and shifted in priorities, and the temporal correspondence of policy swings with factors, context, and conditions that likely precipitated them. The study adopts a mixed-methods approach combining large-scale text mining and content analysis of a large corpus of policy documents with qualitatively matching emergent macro policy shifts with relevant co-occurring events, aided by a theoretical framework generated from past studies. By unveiling the complicity of governance, social, and environmental conditions as well as external events with fluctuating policy priorities, the study dispels the static nature and fixed-planning perspectives of policy-setting, thereby advancing (a) a nascent framework by which policy-makers and decision-makers can adopt contingent and adaptable approaches to policy-making and (b) concrete principles for grasping the significance of tourism vis-à-vis public policies.