So what government story prompted the gradual growth of reported tourists?

I looked at the data a bit more in an attempt to find sources skeptical of the reported tourists, and I couldn't find anything. I did find the reported tourism revenue though, and though it still seems like far more tourists are visiting, the expenses per person has dropped a fair amount leading to the % of GNP from tourism dropping since 98.

This would explain why the economy doesn't seem to be benefitting despite the high rise in tourism.