No C 358/52 Official Journal of the European Communities 31. 12.83 
Opinion on the initial guidelines for a Community policy on tourism 
The text referred to the Committee has not been published in the Official Journal of 
the European Communities. 
A. LEGAL BASIS FOR THE OPINION 
On 30 November 1982 the Commission referred the abovementioned matter to the 
Economic and Social Committee in accordance with the Treaty establishing the Euro­
pean Economic Community. 
Procedure 
The Section for Protection of the Environment, Public Health and Consumer Affairs 
was instructed to prepare the Committee's opinion on the matter. Mr Brassier was 
appointed rapporteur. 
The Section opinion was drawn up during the 77th meeting on 4 October 1983, and 
adopted by 22 votes to seven. 
B. OPINION OF THE ECONOMIC AND SOCIAL COMMITTEE 
The Committee opinion was adopted with no votes against and 2 abstentions at the 
21 lth plenary session, held on 26 and 27 October 1983. 
The full text of the opinion is as follows: 
1. The Committee welcomes the communication 
entitled 'Initial guidelines for a Community policy 
on tourism' sent to the Council on 1 July 1982. It 
endorses the proposal for a Community tourism 
policy in principle and emphasizes the importance 
of the economic, social and cultural consequences. 
2. General observations 
Definition of tourism 
2.1. The Committee considers that for the pur­
poses of the proposed Community tourism policy, a 
very broad definition of tourism should be adopted. 
The Committee takes the view that tourism is not 
only an economic activity associated entirely with 
travel agents, transport, hotels, etc.; it is also a 
human and cultural activity concerned with the 
quality of life and living standards of the population 
in general and particularly of the people in local 
communities and neighbourhoods which tourists 
visit. Modifications to the lifestyles of people and 
mutual understanding between people can therefore 
result from the activity known as tourism. Community and national policies 
2.2. The Committee notes that the Commission's 
intention is not to replace national policies but to 
pinpoint a number of common priorities in certain 
spheres on which action might be proposed. How­
ever, it feels that there is no need for reticence in 
presenting the Council with recommendations over 
and above those envisaged in the guidelines, and 
accordingly has introduced a number of new sugges­
tions. 
2.3. The Committee in fact considers that in view 
of the extensive range of activities which tourism 
covers, the guidelines could give a significant politi­
cal impetus to the achievement of an authentic 
Community internal market and serve as a catalyst 
to spark off action in many fields where progress is 
currently blocked. 
2.4. With this in view, the Committee considers 
that henceforth, the Member States, in the prepara­
tion and implementation of their national tourism 
policies, should take into consideration the need to 
develop a common tourism market which is as near 
perfect as possible. 
31. 12. 83 Official Journal of the European Communities No C 358/53 
International organizations 
2.5. In addition, the Committee expects that the 
Commission will maintain or develop a close colla­
boration with the various other international organi­
zations concerned with tourism (OECD, Council of 
Europe, World Tourism Organization (WTO), Euro­
pean Travel Commission (ETC), International 
Bureau of Social Tourism (BITS), etc.) and utilize 
the considerable research work already done by 
them. But it hopes too that the Community, which 
has legislative powers, will be able to achieve pro­
gress on matters on which little harmonization has 
been achieved to date. 
Economic importance 
2.6. Tourism is one of the major activities, not only 
in Europe but in the world today, and it is estimated 
that it will be one of the biggest 'industries' in exist­
ence by the year 2000. It is also a sector of the econ­
omy which seems to be holding up better than some 
others in the present recession and therefore merits 
special attention. In addition it could go a long way 
towards developing the Community ideal and to 
making Europe more widely known. 
3. Specific observations 
Frontier checks 
3.1. Despite the fact that the Community has now 
been in existence for over 25 years, frontier checks 
for EEC nationals between Member States still 
exist, and vary from State to State and according to 
the type of transport used. 
3.2. The Committee endorses all measures which 
simplify frontier crossing within the Community 
and hopes to see their eventual total abolition; how­
ever, the Committee regrets that while some barriers 
to the free movement of tourists are coming down, 
others are going up. 
Travel documents 
3.3. The Committee supports the Commission pro­
posal for a resolution on the simplification of fron­
tier checks, on which it has already issued a favour­
able opinion. It would make the additional sugges­
tion that a proliferation of documents to facilitate 
travelling should be avoided and that, with this aim in view, the technical aspects of the purposed simp­
lification should be studied. 
Social security (health) 
3.4. In the field of social security, the Committee 
maintains that the Member States, all of which bene­
fit to some degree from the tourist industry, should 
assume the obligation to provide automatic medical 
coverage for EEC tourists where they are covered by 
a compulsory insurance scheme in their own coun­
try. In this connection the present system based on 
the El 11 is considered unsatisfactory and should be 
reformed. 
Tourist assistance — car insurance 
3.5. The Committee notes that under the heading 
of tourist (accident) assistance/car insurance, two 
proposals are still pending before the Council — on 
civil liability insurance since August 1980 and on 
tourist assistance since 1981 — and calls on the 
Council to adopt these as soon as possible. 
Civil liability insurance 
3.6. The Committee requests that the actual imple­
mentation of the recommendation of January 1981 
on accelerated settlement of claims under civil 
liability insurance be looked into, and draws atten­
tion also to the problem of the inadvertent violation 
of traffic regulations by tourists in countries other 
than their own, and the necessity for greater har­
monization of such regulations. 
Hotel safety 
3.7. The Committee also requests the Commission 
to advance its proposal for a standard EEC Reg­
ulation on hotel safety, including the definition of 
standard framework security systems, and the possi­
bility of making it compulsory for hoteliers to insure 
against bodily injury and material damage. 
Tourist insurance in general 
3.8. On the question of tourist insurance in gen­
eral, the Committee is concerned with what appears 
to be an increasing tendency to insure tourists 
No C 358/54 Official Journal of the European Communities 31. 12. 83 
several times against the same risks. It believes that the 
average tourist can never be expected to understand 
fully the various options available, and considers 
that the Commission should examine the possibility 
of introducing a system of standard minimum insur­
ance for tourists, with a list of additional risks which 
could be covered by optional extra insurance. The 
tourist must also be given a copy of each insurance 
policy. 
Travel and hotel contracts 
3.9. The Committee is aware that Unidroit (Inter­
national Institute for the Unification of Private Law, 
Rome) and the Council of Europe have been work­
ing on the preparation of a new standard travel con­
tract and a new standard hotel contract, to replace 
existing conventions on these matters which are 
considered inadequate. The Committee requests the 
Commission to take whatever steps may be appro­
priate to ensure that new standard contracts are 
introduced within the Community. 
Guarantee fund — harmonization 
3.10. In fact, the Committee recognizes that the 
relative division of responsibilities for default in the 
chain of the tourist/consumer/travel agent/tour 
operator, etc, is still in a state of flux and that the 
Commission should examine this policy and suggest 
remedies. The Committee proposes the general 
adoption and harmonization of national guarantee 
fund legislation. 
3.11. It should, however, be noted that all these 
proposals would not necessarily apply to tourism 
originating outside the Community. This aspect of 
the matter will also have to be investigated by the 
Commission and appropriate proposals put forward. 
Opera tors' in teres ts 
3.12. The Committee considers that the interests of 
tourist operators such as hoteliers and travel agents 
must not be neglected, as they frequently have no 
protection against the cancellation of reservations, 
the bankruptcy of other intermediaries and delays 
caused by strikes and bad weather. 
Travel agents — harmonization 
3.13. The Committee is of the opinion that the 
Commission should seek to harmonize the condi­tions for the operation of travel agencies in the 
Member States. The Commission should note, how­
ever, that while it would not be desirable to impose 
excessively strict regulations on well-established 
and experienced agents, it would be desirable to 
check the growth of bucket-sHop travel agents and 
prevent the re-emergence in the market of agents 
who have been responsible for bankruptcy or who 
have been involved in major scandals. 
Right to work 
3.14. As far as the working conditions for those 
engaged in tourism are concerned, the Committee 
points out that confusion must be avoided between 
(a) the right of an independent manager to go into 
business and (b) the free movement of employees in 
this sector. The Committee urges the Commission to 
examine ways of eliminating anomalies, and ensur­
ing the mutual recognition of diplomas. 
Training of tourist executives 
3.15. On vocational training, the Committee agrees 
with the guidelines' observations and recommends 
that greater attention be paid to the training of tour­
ism-management executives, able to adjust to new 
technologies. 
Arbitration body 
3.16. However, while formal legal protection in the 
tourist industry is necessary in a fall-back situation, 
the average citizen does not want to rush into legal 
action if his grievance can be otherwise redressed. 
The Committee therefore proposes the harmoniza­
tion of simple complaints procedures in the Member 
States, and the superimposition of a new Com­
munity procedure if necessary. It suggests the estab­
lishment of a national arbitration body in each 
Member State with responsibility for settling dis­
putes arising within the national territory and con­
sulting its opposite number in other countries in res­
pect of disputes arising abroad. 
Information 
3.17. The Committee notes the impact of new 
information technology on the tourist industry: 
while undoubtedly making the industry more effec­
tive, technology may at the same time be responsi­
ble for a reduction in the number of clerical jobs. It 
also enables people to find out many things for 
themselves immediately. 
31. 12.83 Official Journal of the European Communities No C 358/55 
Brochures 
3.18. In the field of tourist/consumer information, 
the Committee notes that the utility or accuracy of a 
travel brochure or sales catalogue is often in the eye 
of the beholder. It proposes that the Commission 
study existing national regulations and voluntary 
codes with a view to producing guidelines for travel 
brochures and thus combat misleading advertising. 
Promotion 
3.19. In addition, the Committee notes that the 
'guidelines' make no mention of tourist promotion, 
e.g. joint promotion by the 10 Member States to 
attract tourists from non-member countries, (parti­
cularly North America and Japan) and it is under­
stood that by gentleman's agreement this aspect is 
being left to the European Travel Commission. 
3.20. The Committee does not, of course, wish to 
upset an arrangement which may be working satis­
factorily; but it does consider that in the long term a 
fully integrated Community tourism policy would 
have to take an interest in promotion, which may 
mean in practice an even fuller cooperation with the 
European Travel Commission than heretofore. 
3.21. On a practical day-to-day point, the Com­
mittee requests the harmonization and simplifica­
tion of the procedures for the free circulation of 
tourist publicity material between the Member 
States. 
Grading of hotels 
3.22. One aspect of precise tourist information on 
which action could be taken, however, is the grading 
of hotels, which is not standardized at present at 
Community level. The Committee proposes that the 
hotel industry be asked to voluntarily standardize 
the grading system at Community level, in collabor­
ation with interested consumer organizations, and 
that the Commission should introduce legislation if 
no action is forthcoming. 
Fares and prices 
3.23. The Committee feels that despite all attempts 
at simplification the average tourist is still baffled 
by the variety of fares, prices and other rates seem­ingly available for any given tourist activity and the 
number and variety of undisclosed extras, and it 
makes a plea for greater simplification and more 
transparency, perhaps by quoting the minimum and 
maximum tariffs for every given activity with equal 
prominence. 
Fiscal aspects 
3.24. The Committee feels that there is a need for 
Community-level harmonization of fiscal and para-
fiscal provisions. Such provisions differ from one 
Member State to another and have a big and varying 
difference on the profitability of travel firms. If 
necessary, this could be done in the light of the find­
ings of the investigation planned by the Commis­
sion. 
Road maps 
3.25. On another very precise matter, the Com­
mittee proposes that it should be compulsory for 
tourist guides and road maps to bear the date of 
printing and any updating. 
Inclusive holidays 
3.26. Finally, the Committee notes with satisfac­
tion that the Commission is working on a draft 
Directive on consumer protection in connection 
with inclusive holidays. 
Transport policy 
3.27. The Committee considers that a common 
transport policy must be regarded as being part of 
the fundamental infrastructure upon which a tour­
ism policy must be built, regrets that progress 
towards a transport policy has been painfully slow 
and urges the Council therefore to proceed with all 
due speed towards the adoption of the Commission 
transport proposals, particularly those put forward 
by the Commission in its submission of February 
1983, taking account of the Committee's comments 
on these proposals. 
Transport details — coach — rail — air — sea 
3.28. In addition, the Committee has some specific 
observations to make on certain aspects of 
No C 358/56 Official Journal of the European Communities 31. 12.83 
transport; it requests a study of coach and bus saf­
ety. The Committee stresses how important working 
conditions are for road safety and asks national 
authorities to enforce Regulation (EEC) No 543/69 
inter alia by systematic, stricter checks. (The Regula­
tion, which was adopted in 1969, deals with working 
conditions in road transport.) The Committee is 
pleased that the Council has just adopted the draft 
Decision on the commercial independence of rail­
ways. It supports the Commission's proposal that air 
tariffs should be reduced, and appeals for an easing 
of the burdens and restrictions on the air-transport 
industry and fuller harmonization of existing regula­
tions, provided such measures are not at the expense 
of employment in the air transport industry. It pro­
poses that the tourism aspect of maritime and inter­
nal navigation services including ferryboats, cruises 
and pleasure boating be covered by the tourism 
policy. It considers that the importance of transport 
infrastructure needs emphasis as current proposals 
thereon are progressing rather slowly. 
Urban traffic congestion 
3.29. Finally, the Committee points to the necess­
ity to examine the problem of urban and intercity 
traffic congestion in the context of short-term and 
weekend tourism, with particular attention to the 
improvement of access to airports and city centres. 
Social tourism 
3.30. There is an underlying assumption in the 
guidelines, supported by the Committee, that tour­
ism, once the preserve of the privileged few, should 
be made available to all. The introduction of paid 
holidays for everyone is a significant factor here. 
But the Committee would go further and propose 
that the Community evolve a specific social tourism 
policy. 
Social tourism — details 
3.31. The Committee supports social tourism as a 
means of making leisure, cultural and educational 
activities available to everyone. The Committee 
considers therefore that a Community social tourism policy should be concerned with the following main 
problems: 
(i) making it easy for as many people as possible 
to take vacations; 
(ii) seeing that the two major 'dependant' catego­
ries of the population — the young and the 
aged — are adequately provided for by the 
tourist industry, whether they are classified as 
low income groups or not; 
(iii) seeing that not only the low income groups, 
but that certain disadvantaged social groups 
(the unemployed, the handicapped, immigrant 
workers) are also provided for; 
(iv) seeing that certain vocational groups, farmers 
for example, which do not have ready access 
to tourist activities, be considered in any 
coordinated planning; 
(v) integrating outdoor activities with a social con­
tent, tourist sports activities, cultural 
exchanges, and suitable accommodation, into 
tourism; 
(vi) encouraging employment in the tourist indus­
try where small and medium-sized firms 
(SMEs) are frequently to the fore; 
(vii) dovetailing all the foregoing activities into the 
problem of seasonality; 
(viii) examining all the financial aids currently 
available from Community and other sources, 
and coordinating them into an integrated 
financial programme. 
(ix) encouraging both sides of industry to take a 
greater interest in the development of social 
tourism policy and to ensure that social tour­
ism organizations adhere strictly to their oper­
ational rules. 
3.32. The Committee recognizes that this is likely 
to be a long-term operation, but as a first step it 
would ask the Commission to make a survey of the 
facilities already available throughout the Com­
munity, with a view to deciding what further action 
may be necessary. 
3.33. The Committee, in its report accompanying 
this opinion, has gone into some detail on the sub­
ject of social tourism and refers the Commission to 
this ducument for further information. It should be 
31. 12. 83 Official Journal of the European Communities No C 358/57 
noted that the following matters are dealt with in 
some depth in the report: 
(i) youth tourism and employment, including the 
Young Workers Exchange Programme 
(YWEP); 
(ii) tourism for senior citizens; 
(iii) the handicapped and tourism; 
(iv) health resort tourism; 
(v) staggered holidays (seasonality); 
(vi) twinning of towns and cities. Environment and cultural heritage 
3.37. The Committee agrees with the guidelines' 
proposals on the environment and cultural heritage, 
but makes the following recommendations. 
3.38. The Committee draws attention to the prob­
lem of congestion and saturation of the environ­
ment by mass tourism which will need action to 
control it. It recommends as well a study of the lev­
els of saturation in tourist areas and how best to 
control the situation. 
Regions 
3.34. The Committee welcomes the financing of 
tourism projects through the ERDF and the EAGFF 
but recommends a change in the procedure for 
applying for funds for such projects — in respect of 
both commercial and social tourism — so that grass­
roots applications may receive more favourable con­
sideration and hopes that the new revised ERDF 
procedure will help alleviate the problem. On 
employment questions the European Social Fund 
must be brought into play, whatever the tourism sec­
tors concerned. Camping 
3.39. In addition, some form of control will have 
to be introduced in respect of camping and caravan­
ning, and the Commission is requested to examine 
what steps should be taken. 
Urban renewal 
3.40. On the matter of urban renewal, however, the 
concept of cultural/entertainment centres might be 
worth encouraging as a form of urban renewal 
which would at the same time promote tourism, be 
commercially viable and create employment. 
Cross-border cooperation 
3.35. Furthermore, the Committee recommends the 
example of cross-border cooperation such as in the 
Ardennes-Eifel zone shared between Belgium, 
France, Germany and Luxembourg, which could be 
used as a model for elsewhere in the Community. It 
also draws attention to the need for adequate trans­
port infrastructure and connections in the regions. 
Agri-tourism Statistics 
3.41. In view of the fact that comparable tourism 
statistics for the 10 Member States do not yet exist, 
the Committee requests the Commission to arrange 
for Eurostat to align the relevant statistical bases 
and compile and publish the relevant statistics. The 
compilation of comparable tourist accident statistics 
would also be useful. 
3.36. On the important matter of agri-tourism, both 
in the sense of farm tourism (holidays with accom­
modation provided on farms) and in the sense of 
rural tourism (holidays in a rural environment), the 
Committee notes the statement in the guidelines 
that little use is being made of existing Community 
instruments (EAGGF and ERDF) in this field, and 
supports in principle proposals to harmonize and 
support national agri-tourism policies. International dimension 
3.42. In the European context, the Committee 
draws particular attention to the need to integrate 
the two candidate countries for membership of the 
EEC — Spain and Portugal — into the proposed 
tourism policy, in view of the importance of this 
industry to their economies. 
No C 358/58 Official Journal of the European Communities 31.12.83 
3.43. The Committee also supports the Com­
munity policy on the development of tourism in the 
Third World — particularly in the ACP countries 
under the Lome Convention — where the Commis­
sion, through the EDF, is making financial assist­
ance available. 
3.44. The attention of the Commission is drawn to 
the problems facing the EEC tourist travelling out­
side the Community, particularly as regards health 
and safety. The Committee requests that in the for­
mulation of any future legislative proposals the 
Commission bear these points in mind. 
Done at Brussels, 27 October 1983. 
The full text of the opinion is as follows: 
THE ECONOMIC AND SOCIAL COMMITTEE, 
Having regard to the Treaty establishing the Euro­
pean Economic Community, and in particular 
Article 198 thereof, 
Having regard to the request made by the Council 
of the European Communities on 1 August 1983 for 
an opinion on the proposal from the Commission to 
the Council fixing the Community's generalized 
tariff preferences scheme for 1984. Costing plan 
3.45. Finally, the Committee requests the Commis­
sion to work out a costing plan for the tourism 
policy showing much of the proposed policy is cov­
ered by existing allocations. 
3.46. The Committee feels that provisions relating 
to a Community policy on expenditure would have 
a multiplier effect on the economy, very necessary 
in present economic circumstances, and suggests 
that this factor be taken into account in any discus­
sions concerning the reform of the Community 
budget. 
The Chairman 
of the Economic and Social Committee 
Francis CEYRAC 
Having regard to the decision taken by its Bureau 
on 5 July 1983 instructing the Section for External 
Relations to draw up an opinion on this proposal, 
Having regard to its previous opinions on the mat­
ter ('), 
(') OJ No C 205, 11.8. 1980; OJ No C 331, 17. 12. 1980; 
OJ No C 343, 31. 12. 1981; OJ No C 326, 13. 12. 1982. Opinion on the proposal from the Commission to the Council fixing the Community's 
generalized tariff preferences scheme for 1984 
The text referred to the Committee has been published in Official Journal of the Euro­
pean Communities No C 263 of 3 October 1983, page 1. 
A. LEGAL BASIS FOR THE OPINION 
On 1 August 1983 the Council referred the abovementioned proposal to the Economic 
and Social Committee in accordance with Article 198 of the Treaty establishing the 
European Economic Community. 
B. OPINION OF THE ECONOMIC AND SOCIAL COMMITTEE 
The Economic and Social Committee prepared its opinion on the above matter at its 
21 lth plenary session held in Brussels on 26 and 27 October 1983.