Opinion on a policy for the development of rural tourism in the regions of the European Union (95/C 210/17)

On 26 July 1994 the Committee of the Regions decided, under Rule 10 of the Rules of Procedure and the fourth paragraph of Article198c of the EU Treaty, to draw up an Own-initiative Opinion on a policy for the development of rural tourism in the regions of the European Union.

COR Subcommission 2 on Tourism - Rural Areas, which was responsible for carrying out the relevant work, unanimously adopted its Opinion on 25 November 1994. The Rapporteur was Mr Lafay.

At its 6th plenary session on 1 and 2 February 1995 (meeting of 2 February) the Committee of the Regions unanimously adopted the following Opinion.

RURAL TOURISM: A FUNDAMENTAL ELEMENT OF A TRUE RURAL POLICY

Rural tourism has a special role in spatial planning as an important and complementary element of rural development strategy.

- It directly or indirectly involves a multitude of public and private sector operators, and is thus a most suitable field for an interdisciplinary view of rural development.

- Being based on other factors, it helps to offset the problems of disadvantaged regions, and correct distortions and inequalities. To this end a proper 're-balancing' policy could be followed, by reanimating areas which have suffered at any rate a partial economic decline, for example as a result of the new deal on agricultural policy. This integrated action can serve as a cornerstone for local recovery, not merely by establishing a new economy based on services (both public and private), but also by re-using the particularly large stock of traditional buildings which reflect the history of the cultures which have fashioned Europe.

- As a source of additional revenue and new jobs, even part-time or seasonal ones, it helps fight exclusion by providing an economic function and social recognition for many rural people, including farmers' spouses. It is important that high-quality tourism is encouraged in rural areas and training plays a key role in this development. The link between training and investment is crucial and high-quality training will enhance the status of jobs in tourism.

Many areas have already seized this opportunity for development. But has it been exploited to the full ? What are the requirements for a better form of development, which would fit in with a heritage policy where the exploitation and protection of natural, human and cultural resources form the basis of a lasting economic strategy ? What role should European intervention play, and according to what criteria ?

It is worth trying to piece together the answers to this type of question, keeping three objectives in mind:

- To assist elected representatives in their role as promoters, supporters and partners in local initiatives which alone are fundamental to long-term economic activity. Here it is less a case of devising new regulatory frameworks but usually of aiding the adoption or the spread of ideas that have been successfully tried at national or regional level.

- To devise the means needed to ensure a greater consistency in Community intervention and a harmonization of the different Member States' policies.

- To reconcile the needs of local economies and environmental protection on a sustainable basis through the catalyst of a structured and finalized tourism venture.

Openings for Community horizontal or sectoral intervention (objectives 5a and 5b, 1, PICLEADER, funding of pilot projects etc.) already exist in many areas of interest. Obviously these are still too fragmentary and underfunded when seen in relation to the potential scope for global development generated by promotion of tourism. At the same time a number of tasks or requirements are undoubtedly overlooked by this plethora of instruments for action.

In any event, the first principle to be highlighted is the need to pool all the various existing means of action so as to frame a global development approach for a rural tourism project.

From another angle, the problems to be tackled by a new-look development policy need to be appraised:

- the wide range of rural tourism products on offer, though attractive, are poorly structured and insufficiently slotted into the major tourism distribution networks. Supply should therefore be structured along territorial as well as vertical lines;

- the scale of operations is tricky since tourism schemes are faced with a dilemma: either to remain small or to expand possibly at the expense of their individuality and the high standards which have contributed to their success. Here again the problem of organization on an appropriate scale arises;

- the potential detrimental effects of taxing rural tourism and the need to harmonize the various tax rules applicable to rural tourism operators.

Lastly, an initial appraisal should be made of operations supported successfully over the period 1989/93 so as to identify the profile of the various approaches or methods to be encouraged:

- projects must be based on an integrated approach;

- the region's main natural resources must be exploited;

- the local population must both benefit and be involved. Here attention should be paid to boosting attractions by expanding the range of activities available to the tourist (sports, culture, etc.): the project must therefore be planned on a global partnership basis.

A new overall approach must therefore be encouraged. The guidelines of this effective rural tourism promotion strategy, acting as a catalyst for rural development and planning, can focus on twelve key points, grouped under five main principles.

1. Research

More effective development of rural tourism depends on the existence of instruments for determining both global and individual market strategies.

1.1. Support for the creation and development of observatories covering the economic aspects of tourism

More detailed knowledge of expectations and patterns of demand is an important aid in framing market strategies. The absence of comprehensive studies and references is particularly regrettable given the 'migratory flow' patterns of rural tourism, where European clients are in the majority.

Every Member State has its own arrangements for observing and documenting tourist flows. These arrangements, though valuable, need to be harmonized: there is an urgent need to settle on a common language, method and knowhow. This approach could draw on the lessons learned in connection with the observatory for the rural environment to be set up by the Commission.

1.2. Support for the creation and development of regional resource centres

The aim would be (a) to compile the technical data needed by decision-makers, technicians and business leaders and (b) to encourage links between these regional centres to allow more effective harmonization of their activities and an accumulation of knowhow. Public or private field operators could then be aided in planning and implementing their individual strategies. The success of the CARRURE (European rural workshop) project could serve as inspiration for a broader approach, in which the role of rural tourism would be clearly identified.

In addition, more general activities should be pursued throughout the Community to pinpoint the representative bodies in each Member State and their main action programmes. This appraisal should help in setting up networks designed to improve product quality and economic performance (cf. the LEADER 1 project). Here a European Federation grouping all bodies active in rural tourism is highly recommended to provide a forum for exchanging information and practical experience.

2. Development for a new equilibrium

Rural tourism is an accumulation of activities and services focusing on a geographical area: this concept of a chain of common interacting interests must be the guiding idea to ensuring consistent sectoral and horizontal development policies.

2.1. Protecting and exploiting the cultural, natural and traditional heritage, stressing the rehabilitation of disused buildings and support for local culture and traditions as part of an overall project drawing on all local resources

- Original schemes such as 'Rendez-vous en France' can serve as guide. Starting with the restoration of 'ordinary' buildings up to modern standards of comfort, the aim is to propose a comprehensive economic project integrating local services and a variety of activities respecting the authenticity of the rural environment. This policy of reanimating the 'pays' (involving several local authorities) is based on a 'tourist product' label and approach which can help to give rural areas a new momentum.

It could be backed by the exploitation of local products and time-honoured agricultural working practices, especially in stock farming and crafts (trades) which are a high priority in the 'diversification' to which both local representatives and tourists in search of an authentic lifestyle attach such importance.

Lastly, on a more general level, encouragement must be given to promoting and protecting local cultures, which can become the focus of tourism (e.g. music, dance, art, literature, etc.). These 'assets' have been exploited in many regions of the Union by arranging events such as traditional fairs and international festivities. Obviously such strategies should be extended to more traditional holidays, since it is clear that this approach does not benefit holidaymakers alone but is in the interests of the local population. Many schemes have been launched to make these various cultural aspects a more integral feature of recreation activities and in some cases already receive Community assistance (e.g. the 'pays Cathare' project supported by the Belgian Wallonia group under LEADER 1).

Encouragement must be given to this type of development strategy, which can help surviving aspects of our past threatened by the decline of the farming economy to regain their usefulness and economic viability, besides preserving a living heritage through the close support and involvement of the local population.

On a proper heritage policy for management of the natural environment, ranging from support for the upkeep of open spaces and tourist areas to a real countryside policy encompassing the entire territory. Various initiatives have already been taken by Member States; European Directives on the protection of wildlife and control of agricultural production have also started to yield partial solutions to the need for management of natural resources by setting aside special resources for a sustainable agricultural and environmental development policy. In addition to its human assets, rural tourism mainly relies on natural attractions.

Local communities must therefore receive support (also across national and/or regional borders), in exploiting these resources for tourist purposes by organizing proper channels for tourist products.

Economic support and back-up must therefore give preference to 'soft', alternative and sustainable forms of tourism which focus on the natural environment yet preserve the natural balance and reconcile the long-term interests of all local protagonists.

The development policy pursued by the Regional Natural Parks is a model of spatial management which is both professional and respects the natural heritage.

There is a need to promote and protect indigenous culture, particularly in remote rural communities. Indigenous culture should be promoted and developed as a platform for developing interest tourism such as linguistic and cultural tourism. This would be associated with the stimulation of tourism in its widest sense and include language, music, dance, art and literature. By strengthening indigenous culture, not only is tourism stimulated but the threats to the culture are also reduced and a greater enthusiasm for tourism is encouraged locally.

2.2. Taking into account the problems of maintaining public and private local services, which are indispensable for visitors. Such a policy would help in restoring the balance of areas, both in physical terms and in terms of reviving the rural environment. So far insufficient attention has been paid to this key point, even in connection with initiatives such as Leader.

2.3. Improving the accessibility of cultural, natural and leisure sites to permit greater exploitation of this heritage by support for communications infrastructure across national and regional boundaries. Consideration also needs to be given to the exploitation and maintenance of little-used transport services to ensure route continuity throughout Europe, never losing sight of the necessity of protecting and developing the way of life of the local inhabitants. Action under way to rehabilitate ramblers' paths or create access routes (objective 5B, Leader ...) should be pursued - they are essential for tourism - as should measures to be taken to improve road signposting.

2.4. Definition of a common sign system: In order to make the countryside of the Union legible and accessible to everyone, a set of common symbols should be developed, not with the intention of replacing commercial trademarks, but rather to make a European reading of rural tourism easier. These standard symbols should correspond to harmonized lists of indicators (accommodation, facilities) and services on offer, with the emphasis on quality criteria and giving clients the assurance of properly trained local operators.

Reception must be organized along with the information points needed at the appropriate level (small town - 'region'), depending on an assessment by the local and regional authorities and set up in due collaboration with these authorities. Coordinated services will make the tourist's choice easier.

In any event the main aim is initially to harmonize and simplify symbols throughout the Union. However, it is also important that space is made available for minority languages in any signposting scheme.

3. Organization

One of the major difficulties with which the various operators involved in rural tourism have to contend is the definition of a 'critical mass' large enough (in terms of facilities and variety of services) to be attractive yet at the same time preserving the authenticity and special features to which they owe their success.

3.1. Encouraging and organizing new local tourism schemes

The attraction of rural tourism is linked with the natural and cultural assets of Europe's mosaic of regions. Opportunities for local development will best be promoted on a long-term basis by exploiting their specific human and cultural resources. Consequently encouragement must be given to new projects during the planning stage and common consultation among all potential operators in a geographical area (transcending administrative divisions to focus on geographical, economic and human compatibility).

This promotion and consultation drive involving all operators within a particular area requires support since in many cases it is vital in order to get individual or collective projects off the ground, to be followed by the coordinated development programmes necessary to put together a tourist product combining reception, accommodation, catering, services, recreation activities and entertainment.

The management of tourism will differ in the regions of the European Union according to climatic conditions and this may mean providing facilities which could not be sustained by the local population alone.

3.2. Promoting infrastructure for the management of local development strategies

Formulae for facilitating cooperation, partnership and the pooling of resources between businesses, associations and public authorities must be worked out and put into practice.

In this connection, the Irish Country Holidays scheme (currently grouping nine districts) could serve as guide in identifying the requirements and methodology of an overall approach for planning and marketing a complete and harmonious tourist product encompassing an entire area.

4. Training

The main aim is to introduce a back-up policy stretching from the start-up stage of a project (awakening of interest) to its monitoring and networking by means of a central operator, who enlists the requisite external skills at each stage in the project's life. This new global long-term back-up policy is clearly an additional guarantee of implementing ambitious and viable individual projects.

With this in mind, pending the identification of a global financial framework for finalizing this new policy, two aims must be achieved: firstly, to improve the quality of advice provided to businesses and, secondly, to devise training methods which are both innovatory and of a high standard.

4.1. Support for jobs by assisting firms. Advice centres for firms and project developers should be set up and developed to collect data on all activities conducive to rural development, thereby encouraging young entrepreneur 'nurseries'. In addition to the various instruments, the UK project allocating public subsidies to the council for the promotion of small and medium-sized firms is of interest.

4.2. Support for the training of elected representatives and technical staff, both in occupational sectors and in the field, focusing on practical schemes grouping the various partners: local representatives, economic operators (firms, etc.) and representatives of associations (social, occupational, cultural and other organizations). The activities of local operators must be adapted, on a case-by-case basis, to the requirements of an inter-sectoral partnership and multi-activity practices.

In this connection, much can be learned from the Euroform cross-border project for the definition of an agri-tourism training/back-up programme.

Similarly, initiatives such as the creation of Regional Funds to promote tourism advice and innovation could usefully be expanded.

5. Management

5.1. Support for new technology development programmes (particularly in the field of distribution management), avoiding the risks of poorly controlled or insufficiently tested computerized packages.

5.2. Harmonization of rural tourism management frameworks

The aim is to make local initiatives more effective and, with the help of a territorial approach, to bring together individual sector viewpoints in a real rural policy.

Several types of action can be recommended:

- promoting cooperation between the various operators involved in rural tourism so as to smooth out difficulties linked with ignorance of their reciprocal remits and encourage reflection on their joint needs (e.g. statutory problems, infrastructure or promotion requirements);

- boosting the economic performance of tourist activities through fuller information on potential funding (EU, Member States, regions ....) and development incentives (tax concessions). Development programmes must be considered, differentiating between assisted regions (objectives 1, 2, 5b) and regions which, though not assisted, require support for potential projects. Specific support can undoubtedly be provided by occupational and technical networks but arrangements need to be made for suitable forms of technical back-up (project management) and financial support (tax concessions during the start-up and running-in stages);

- lastly, cataloguing ways of channelling local savings so as to benefit rural economic schemes. A special study should be made of the problem of mobilizing local resources as a potential force in terms both of facilitating project creation or consolidation and 'welding' local support for a project.

6. Ways forward

A global rural tourism development programme should be worked out with the EC Commission departments to ensure coordinated implementation of the above twelve proposals.

This entire new advance in quality global support for project leaders, which is tantamount to a new economic strategy for spatial exploitation, needs to be fully tested on a life-size scale over a sufficient period for genuine lessons to be learned. In particular, an analysis needs to be made of the difficulties and obstacles encountered in the various European rural areas. In planning and implementing this programme, two factors need to be taken into account.

This initiative programme needs to take two factors into account:

- development, particularly for tourism, can only be considered in spatial terms by considering all the basic functions which make up tourism: reception, board and lodging, services, leisure and activities. The success of rural tourism thus lies in a harmonious use of local potential set against a background of optimal development of the agro-rural space in question;

- bringing the concept of natural balance to sustainable development on a European scale: the environment - in the sense of the area but also the stock of traditional buildings - is a valuable asset at local level, as long as it is dealt with not only in conservationist terms but also in terms of appropriate new uses.

For these two approaches to have concrete results, attention must be paid during the transition from setting up the project planning to implementation, using project management appropriate to each case.

Planning includes:

- the creation of an environment;

- bringing together the willpower and the means;

- defining approaches and goals.

Project management aims to:

- plan individual and collective implementation methods;

- draw up a schedule for action;

- favour local cohesion;

- study the effectiveness of methods taking account of local factors;

- define complementary features required for the organization of reception and services.

The required trials therefore need to be carried out on recognized sites on operations identified locally on the scale of the areas concerned (such as the groups of municipalities or 'pays' in France).

The validity of this process relies on its being carried out in enough sufficiently diverse areas to produce representative results.

7. Conclusion

The Committee of the Regions would emphasize that the European Union has no competence in the field of tourism policy and that Community measures to develop rural tourism can only be taken within the framework of other Community policies and the Structural Funds.

The purpose of the above twelve proposals is not to criticize the local initiatives which are the backbone of rural tourism or the national or local organizations from which it derives its strength. On the contrary, what is needed is to:

- recognize the importance of the opportunities offered by sustainable, environment-friendly forms of tourism which make the most of the local natural resources and heritage and are rooted in the initiative of the local population. In many (particularly the most remote) areas, rural tourism can help in balancing the development of the entire European territory;

- harmonize arrangements for the management of tourism: among the most important of the many areas of action are the organization of tourist flows in the Union (set of symbols, timetable of school holidays, use of modern distribution channels such as telematics) and the need to harmonize the rules governing the various operators involved in rural tourism;

- promote the pooling of resources through EU back-up - based on existing and increased powers and financial resources - and thereby give the rural world its rightful place in the EU. This policy presupposes the coordination of financial support and closer consultation between public and private operators.

In the light of these three principles the Committee of the Regions advocates support for:

- a European Observatory centralizing the data collected by a network linking up tourism observatories in the regions of the Union;

- resource centres to back local initiatives (cf. CARRURE project);

- ambitious policies seeking to protect and promote the cultural, natural and traditional heritage, focusing particularly on agriculture's contribution in making good use of the relevant space and knowhow (gastronomy, reception, traditions, etc.);

- measures to maintain services essential for tourist visits;

- development of transport infrastructure, especially in the most remote areas of the Union;

- harmonization of symbols so as to facilitate tourist flows;

- awakening of local interest to generate projects genuinely rooted in local initiative;

- approaches grouping all public or private operators on a territorial basis for the purpose of devising a complete tourist product consistent with market requirements;

- development of advice centres to provide support for firms,

- ambitious training programmes providing back-up for projects (from the awakening of interest through to networks of operators);

- adoption of new technologies for market distribution;

- cooperation on rural tourism management infrastructure (entrepreneurs' remits, tax arrangements, available financial and manpower resources, etc.).

The aim of these twelve proposals by the Committee of the Regions is to turn an ad hoc economic activity characterized by fragmented individual products into logical, integrated and heritage-conscious exploitation of the tourist assets which can open up new horizons for many of our rural areas.

Done at Brussels, 2 February 1995.

The Chairman

of the Committee of the Regions

Jacques BLANC