Opinion of the Economic and Social Committee on the 'First Multiannual Programme to assist European Tourism (1997-2000) - Philoxenia` () (97/C 30/26)

On 24 June 1996, the Council decided to consult the Economic and Social Committee under Article 198 of the Treaty establishing the European Community, on the above-mentioned proposal.

The Section for Regional Development and Town and Country Planning, which was responsible for preparing the Committee's work on the subject, adopted its Opinion on 17 September 1996. The Rapporteur was Mr Sklavounos. The Co-Rapporteur was Mr Regaldo.

At its 338th Plenary Session (meeting of 26 September 1996) the Economic and Social Committee adopted the following Opinion by 84 votes to five, with six abstentions.

1. Introduction and historical background

1.1. The Economic and Social Committee first formally addressed the subject of tourism in 1989. In an Own-initiative Opinion on tourism and regional development () the ESC regretted that such a huge sector which created prosperity and jobs was not the subject of a Community support policy, further noting that many member governments neglected the sector and had not set up a special ministry for it.

1.2. The European Commission published its initial reflections on Community measures to encourage tourism during the 1980s. The Council of Ministers then decided to proclaim 1990 'European Tourism Year`, a symbolic gesture which drew the attention of the Member States and European citizens to the economic dimension of tourism, and to the importance of taking concerted development action.

1.3. In 1992, the Commission published a three-year action plan, which the ESC approved as a promising first step, despite its shortcomings () (cf. Chapter 5).

1.4. During the years which followed, and particularly during the preparations for the Edinburgh Conference which was to lead to the Treaty of Maastricht, the Economic and Social Committee and the European Parliament took action on various occasions to urge the Commission and the Council to coordinate the proposed measures more efficiently and to provide a consistent framework for a European tourism policy ().

1.5. Initial results did not fulfil expectations: while the amended Treaty acknowledged for the first time the possibility of taking measures in the field of tourism, it fudged the issue of including such a policy in the Treaty on its own proper legal basis, and the question was postponed until the 1996 Intergovernmental Conference.

1.6. The next step was the publication of the Commission's Green Paper on tourism (). The Green Paper's aim was to sound out the reactions of all the partners concerned (the sector's professionals, consumers, environmentalists, etc.) regarding what would be a desirable future for the sector at European level, ranging from maintaining the status quo through to option 4, the inclusion of a 'Tourism` chapter in the EU Treaty. The majority of the Economic and Social Committee came out in favour of option 4, on the grounds that Europe could effectively bring added value to tourism as promoted and practised in the different Member States.

1.7. After assessing the results of the action plan () and the reactions to its Green Paper, the Commission, following a proposal from Commissioner Papoutsis, is now submitting the Philoxenia programme.

1.8. The administrative unit for tourism in DG XXIII was set up only in 1989. It should be mentioned that the tourism portfolio was previously a responsibility of DG VII - Transport.

1.9. By definition, tourism is a subject of a horizontal nature, and consequently both DG XXIII and other Directorates-General, have adopted and continue to adopt measures directly or indirectly influencing the tourism sector. These include DG IV - Competition, DG V - Employment, Industrial Relations and Social Affairs, DG X - Information, Communication, Culture and Audiovisual Media, DG XI - Environment, DG XVI - Regional Policies, DG XXIV - Customs and Indirect Taxation and DG XXIV - Consumer Policy.

1.10. Consequently, most Community measures, excepting of course those of DG XXIII, were adopted on the basis of different priorities and different viewpoints from those of tourism.

1.11. It should, however, be pointed out that the above does not apply to the period from 1995 onwards during which DG XXIII (Tourism) has endeavoured to ensure better coordination of Community measures influencing tourism, subject of course to its informal and limited coordinating responsibilities. As a result of the 1993-94 action plan, the need was perceived to strengthen the horizontal approach to tourism and to avoid overlaps. Today it is necessary to develop still further internal Community mechanisms for coordination and for maximization of the expected results. This must be the role and responsibility primarily of DG XXIII.

2. The importance of tourism for the European economy

2.1. The ESC has repeatedly stressed the importance it attaches to tourism, and would take this opportunity to emphasize that it regards the tourism sector as being vitally important to the European economy for a variety of reasons, especially as:

- the tourist industry is expected to be the largest in the world by the year 2010, with about 700-750 million international arrivals ().

- Europe is likely to remain the main destination of world-wide tourist flows (even if its relative share in world tourism is declining).

- as a result, tourism is the economy's largest creator of jobs, with direct and indirect repercussions on regional development and on the development of other sectors.

2.2. The importance of tourism for the European economy can be summarized in the following indicators: Tourism presently accounts for one in eight jobs in Europe, employing over 9 million workers. At the same time, it represents 13.4 % of the European Union's GDP ().

2.3. As the Explanatory Memorandum to the Philoxenia programme (COM(96) 168 final) recognizes, retention of the first place in the world tourism market does not justify complacency. Over the last twenty years the European market has shown a steady decline (about 10 %), with a parallel increase for destinations in South-East Asia, North Africa and South America. Clearly, the European Union cannot remain indifferent to these developments.

2.4. The aim of retaining a significant position on the world tourism market cannot be concentrated solely on statistical targets. Europe must maintain its leading place in high-standard tourism, offering high-standard products, and forms of tourism involving exchanges. Apart from natural resources and cultural heritage factors Europe must formulate and maintain a sales policy based on high quality products and services, and highlight the European identity and current European trends. In addition to the traditional, historical, cultural and nature-related aspects of the market, European marketing can and must offer products which will constantly renew interest and generate demand.

2.5. In the formulation and implementation of such a strategy, there is a need for a high level of cooperation and coordination at all levels - local, regional, national and European Union. There must be cooperation and coordination between jointly responsible bodies in the public sector, and between the public and private sectors.

2.6. There is a need for research into world demand and its formation, into world-wide competition and into trends on the internal market.

3. Current developments and problems

3.1. The development of European tourism from the age of the isolated tourist/traveller of the late 19th and early 20th century to that of present-day mass tourism or the so-called 'tourism industry` is inextricably bound up with the development of the European economy and society which determines it and which, to a large extent nowadays, it influences.

3.2. Besides the many positive consequences in respect of economic development, modern mass tourism is characterized by:

- the transformation from a privilege of an economic and social elite to a benefit for wider, popular and indeed mass consumption;

- the establishment of touristic holidays as a basic need at all levels (in terms of income, education and class) of European society;

- the formation of gigantic enterprises which undertake to satisfy the above need by creating tourism products and travel facilities;

- mass transport, mass recreation, mass accommodation and catering, viz. standard arrangements covering almost every aspect;

- the adaptation, both of the quality of tourist goods and services and the way in which they are presented and consumed, to the needs created by the mass market;

- the increasing availability of low-cost transport and services without the final product being necessarily sold at a low price.

3.3. There are consequences in:

- environmental terms (geographical over-concentration of tourist accommodation in small areas of particular beauty, over-concentration of tourist population in particularly small areas and certain periods of the year, putting a substantial environmental burden on the soil and subsoil);

- social terms (in a number of regions which specialize in mass and seasonal tourism serious social problems have arisen: problems in societies receiving tourists and problems between tourists and those societies);

- cultural terms (the mass scale and form of tourism in many regions creates serious cultural problems).

3.4. Specific consequences of mass tourism

3.4.1. The one-sided specialization in tourism and the seasonality of economic life in a number of regions have a destabilizing effect on the social fabric.

3.4.2. In the peak holiday period social life is paralyzed for the benefit of economic life, while cultural life is transformed into a product available for consumption by visitors.

3.4.3. Relations between tourists and the local community are inadequate. Due to the above-mentioned standard arrangements for the tourist as a customer and as a consumer, the accent is more on profit than on human contact and communication.

3.4.4. The trend towards oligopoly in the marketing and handling of European tourism tends to create serious clashes and conflicts of interest within the European tourism 'family`.

3.4.5. A shift in the centre of gravity of the business interest of the tourism giants from the supply of tourist products and services to the profitable investment of capital collected through advance bulk selling of pre-paid package holidays.

3.4.6. The transfer of capital and profits from the tourism industry to the financial system.

3.4.7. The rapid 'touristic devaluation` of whole areas, resulting in negative effects on local communities and economies, through the geographical over-centralization of accommodation, excessive numbers of tourists and the destruction of the natural and cultural capital which constituted the original basis for the development of tourism.

3.4.8. The seasonal concentration of tourist flows in most regions of Europe, resulting in seasonal employment both in terms of the workforce and in terms of capital invested.

4. Basic needs of European tourism today

4.1. The basic needs of European tourism today can be classified as follows:

- the needs of its average customer (as a human being, a working person and a consumer, in terms of present and prospective demand);

- the needs of accommodation proprietors or businesses (mainly small and medium-sized enterprises);

- the needs of tour operators, the main actors in the European tourist industry;

- the needs of those employed in tourism;

- the needs of society in general, particularly in tourist destinations.

4.2. Customers' needs

- need for reliable advertising and information;

- need for safety while travelling and throughout their stay as regards any possible threat;

- need for cheaper fares within the internal market, without compromising on the quality of service;

- need for market price to match quality of services on offer;

- need to avoid the risks of market control concentrated in a few hands;

- need for direct, effective and financially objective response in the event of accident or illness in both internal and external tourism.

Both on the problems of the tourist as a consumer and on problems relating to accidents and health, the ESC reasserts the views expressed in its earlier Opinions.

4.3. The needs of accommodation owners and businesses

- these suppliers are calling for fair treatment in setting their prices as a precaution against abuse of a dominant position by tour operators;

- they need arbitration procedures and institutions in order to settle disputes about prices and fair terms of payment;

- they need special credit facilities for their business needs under the European banking system and the European Structural Funds;

- they need more direct communication with consumers, information and further training on the information society and new technologies;

- there is a need for participation in publicity, environmental protection, and infrastructure improvement by local and regional authorities, states and the European Union;

- there is a need to tackle the seasonal nature of tourism and the problems which it causes for a large number of tourism enterprises;

- also a need for management education and training.

In tackling the above problems, one undoubtedly needs to accept the principle of subsidiarity, but also the need for European participation.

4.4. The needs of tour operators

The tour operators take the view that ensuring basic infrastructures such as airports, telecommunications, water supply and sewage systems, and a socio-political climate which is peaceful and friendly towards tourism, is a basic precondition enabling them to plan and supply products and services.

European and world-wide publicity is undoubtedly welcome to the tour operators.

4.5. The needs of people employed in tourism

4.5.1. People working in the tourism sector cannot be defined homogeneously in terms of their income, their professional qualifications and their position under law and regulations. This arises partly from the great differences in the activities they perform and partly from the great number of firms and enterprises which contribute to a single final 'tourist product`.

4.5.2. What these workers have in common, however, is a high proportion of atypical and seasonal jobs and an environment of relative deregulation as regards working conditions.

4.5.3. The increase in employment which ought to result from an adequate strategy of tourism development will have to be accompanied by a qualitative improvement in workforce skills. The following measures will be necessary:

- to promote training, proficiency and participation as well as mutual recognition of working experience, qualifications and diplomas;

- to provide a legal framework for all workers, even when their jobs are 'atypical`;

- to check on the safeguard of minimum rights set up by the Charter of Fundamental Rights of Workers in the EU, especially concerning working hours, health, safety at work and working conditions certified by contract;

- in every case to abide by the ILO conventions, in particular convention 172.

4.5.4. These measures will help to bring about tourist services of quality, to ensure vertical and horizontal mobility of people employed in tourism and also to solve by way of consensus the problems of flexibility of SMEs in tourism.

4.6. The needs of society in general

4.6.1. In sharp contrast to well-balanced regional and economic development, the anarchic development of mass-tourism activities in many regions of Europe, particularly southern Europe, has created a whole range of problems and needs, calling for study and decisive action. Many centres of tourism have become areas of unbridled mass recreation which create problems for local communities. In many tourist areas, rather than being a factor for contact, acquaintanceship and understanding between peoples and between cultures, tourism is a factor for xenophobia, conflict and open clashes.

4.6.2. Communities in tourist areas require preparation and information. The mass media, whose task it is to communicate with and inform communities in tourist areas, require a special kind of information in order to prevent negative effects. Cultural contacts and exchanges between tourists' home and destination areas during the off-seasons are necessary in order to create a new scale and quality of relationships and exchanges which are not exclusively utilitarian. The problem of developing the management of off-season time in social, economic and cultural terms calls for training and further training in many regions, particularly in southern Europe.

5. The basic gaps in action taken so far

5.1. The policy measures in support of tourism up to and including 1995 are characterized by:

- lack of cohesion;

- lack of coordination amongst bodies responsible;

- lack of strategic planning;

- lack of research and programming;

- lack of procedures for evaluating results;

- the weakness of prevention and/or correction of the negative effects of tourism;

- the lack of procedures and methods for dialogue in the field of tourism;

- lack of harmonization (for instance on VAT).

6. Philoxenia

6.1. The proposed four-year programme to assist European tourism (Philoxenia), beginning on 1 January 1997, has as its main objective to stimulate the quality and competitiveness of European tourism, in order to contribute to the general growth of the European economy and job creation.

6.2. To achieve that strategic objective, the programme proposes four intermediate objectives:

- to improve knowledge in the field of tourism;

- to improve the legislative and financial environment for tourism;

- to improve the quality of services and products in European tourism;

- to increase the number of tourists from third countries.

6.3. It proposes that the programme be open to the participation of the associated countries of central and eastern Europe under the cooperation protocols for the participation of those countries in Community programmes. The programme will also be open to the participation of Cyprus and Malta under rules applying to EFTA countries as countries participating in the European Economic Area, and in accordance with the procedures to be agreed with those countries.

6.4. The proposal also states (in Article 7) that the European Commission should provide information on each basic measure concerning tourism, through a report to the European Parliament, Council, Economic and Social Committee and Committee of the Regions.

6.5. Article 8 of the proposal introduces regular evaluation of the results of the programme, and, on the basis of this evaluation process, an interim report three years after the beginning of the programme and a final report within twelve months after the end of the programme.

7. General comments on the programme

7.1. As regards the aims of the programme, the ESC notes that:

- the objectives set by the programme correspond to basic primary needs of European tourism;

- they are within the parameters set by the resources allocated for carrying out the programme.

7.2. Both the proposals for informing responsible interested bodies and the proposals for stage-by-stage and final evaluation of the programme correspond to the views already expressed by the ESC on democratic participation, transparency and effectiveness of Community actions.

7.3. The Economic and Social Committee believes that all the Mediterranean countries covered by the decisions of the intergovernmental Barcelona Euromed conference (1995) - and not only Cyprus and Malta - should be involved in Philoxenia with a view to developing optimum tourist synergies throughout the Euro-Mediterranean area. This should of course be achieved by using various separate budget lines (e.g. those specifically provided for in the Barcelona decisions) so as not to further reduce the already scarce resources available to the Philoxenia programme.

7.4. The proposed measures are in line with the principle of subsidiarity. They also define correctly the needs and interests of European tourism. In addition, the programme is appropriately structured, and successfully combines strategic objectives with intermediate and immediate aims and actions.

7.5. However, Philoxenia does not bring out the particularly important need for a European external policy on tourism. The formulation of such a policy could deal with delicate and important subjects in economic, social, political, ethical and cultural terms.

7.6. In particular the problems linked with organized 'sex tourism` and all types of child abuse and exploitation, in Europe and elsewhere, are a matter of grave concern to the Committee. It considers the formulation and implementation of measures to combat these phenomena to be of immediate importance ().

Sex tourism also has repercussions on the external image of Europe and on its relations with other countries, such as those of North Africa, the Pacific area and Latin America. Moreover, traditional forms of tourism are threatened by negative customer reactions against sex tourism.

7.7. On funding

The ESC takes the view that the needs of European tourism call for a much more encouraging and generous approach on the part of the European Commission and the European Union. The aims of the programme, though set out in a proper order of priority, are limited by the insufficient funding of the programme. The first Multiannual Programme to assist European Tourism ought to have resources at its disposal which would enable it to include promotion, support and development measures, not only to encourage visitors from outside, but also for internal tourism within Europe and for all alternative forms and categories of tourism which serve:

- to extend the tourism period;

- to tackle the problem of seasonality;

- to increase employment;

- to offer services of high quality.

8. Specific comments on the proposed objectives and measures

8.1. Objective A: improving knowledge in the field of tourism

The ESC believes that Objective A is a top priority for the serious study of the problems faced by European tourism and for the formulation and strengthening of an effective development policy. In addition, assessment of the effectiveness of direct and indirect assistance to tourism will remain mere verbiage without substance if Objective A is not pursued as fully and methodically as it should be.

8.1.1. Objective A1: Developing tourism-related information

The ESC sees an undeniable need to improve the accessibility and user-friendliness of the statistical data. As regards the measures, the ESC agrees both on the usefulness of establishing a European statistical system for tourism and on the need to carry out research, studies and analyses. However, it would point out that those responsible for the sector will need to participate in prioritizing needs and in determining the priorities of the research programme and the programme of studies.

8.1.2. Objective A2: Pooling tourism information from other sources

Collection of information on tourism from other sources is a very useful service which will cover practical, theoretical and research needs - those of the tourism industry but also those of policy makers. The proposed action, the creation of a European research and documentation network has the ESC's approval as regards its utility. However, its mode of operation and communication with the tourism industry are questions which call for clarification, dialogue and careful attention. The ESC also judges that the action proposed under Objective A2 complements the A1 measures, and in that sense Philoxenia, at least in terms of method and approach, covers the whole range of needs of the tourism industry, in research, study and documentation. Of course, the serious question of the way to achieve the objectives, and of relations of the network with those working in the sector, remains open. The problems of access to the network's data and of transmission and dissemination of information by the network remain open for discussion.

8.1.3. Objective A3: Facilitating the assessment of Community measures affecting tourism

The ESC agrees with the proposed Objective A3, but would point out that in its view the proposed action does not correspond to the needs set out by the Objective.

8.1.3.1. Certainly the Philoxenia programme is not the only instrument of European tourism policy. The European tourism industry is supported by the European Union through a very wide range of measures with direct or indirect effects on tourism. The Commission's report to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on Community measures affecting tourism for 1994 (COM(96) 29 final of 5 February 1996) comprises a very extensive description of:

- the direct Community measures which influence tourism;

- the special Community actions to support European tourism, and the other Community measures which influence tourism.

8.1.3.2. The Structural Funds provide most of the funding for tourism and it is planned that this will go on being the case in the 1994 to 1999 period. Despite the fact that the Funds' allocations for tourism were 'defined` in the Community Support Frameworks or the Single Programming Documents (which were drawn up by agreement between each Member State and the Commission), at the moment it is difficult to determine which aid goes where, to which sectors exactly, and on the basis of what criteria.

8.1.3.3. It is clear that the tourism industry is also supported through the Cohesion Fund in order to improve the transport infrastructure and protection of the environment in Spain, Portugal, Ireland and Greece.

8.1.3.4. Moreover, it is thought that interventions by the European Regional Development Fund are the most important source of allocation of Structural Funds for the development of tourism (COM(96) 29 final, p.80). ERDF funding is divided between infrastructure works, the development of the regions' own resources and productive investment.

8.1.3.5. Actions relating to so-called tourist resources, architectural and cultural heritage, natural and man-made environments, or actions relating to human resources, undoubtedly have an impact on tourism. Measures on research and development are also regarded as important for tourism.

8.1.3.6. It is an obvious fact that tourism in the European Union is indirectly supported by many activities (like all the sectors and branches of the European economy). The study of these activities (activities which support tourism indirectly or other policies which directly support tourism) leads to the unwelcome conclusion that at present we do not know what, or how many, forms of assistance are given to tourism at European level, with what priorities, how much cooperation is aimed at, and in the context of what strategy.

8.1.3.7. The ESC takes the view that a clear distinction must be drawn between direct and indirect support for the tourism sector, if possible broken down by branch.

8.1.3.8. The term 'tourism industry and assistance for the tourism industry` is rather general and does not make possible the essential evaluation of needs, assistance and results by branch. For example, the Council on land-use planning (Leipzig, 21 September 1994) decided on the drawing-up of a European plan for land-use development. Recognizing how important the achievement of such an aim is for the formulation of a European strategy on tourism and for tourism policy at a pan-European level, we can certainly reach the following conclusion:

- the collection, evaluation and distribution of information on tourism on a pan-European scale is essential;

- setting priorities for actions, and ensuring cohesion, coordination and cooperation in those actions should be the main concern of DG XXIII.

8.1.3.9. Consequently, more substantive and more effective measures are essential to facilitate and evaluate Community measures which influence tourism, and the Philoxenia programme proposes such measures. There is a need for other DGs, when they take measures affecting tourism, to take into consideration the framework of principles, priorities and objectives formulated within the scope of DG XXIII. New policies in the field of communications, structural funds and environment for instance ought to devote a special chapter to impact on tourism (as was done in the new action programme for environment). Similarly, the responsible Directorate-General should be able to provide immediate information on any measure directly concerning tourism.

8.1.3.10. As regards the proposed action under Objective A3, the ESC feels that the proposed mechanism would be more useful:

- if it was of an economic rather than legal nature;

- if it could operate as a mechanism of synergy, harmonization and coordination between DG XXIII and other Directorates-General whose activities relate to tourism;

- if it could monitor and assess to what extent the synergy and the combined results of the various measures fulfil the strategic objectives of the EU's tourism policy.

8.2. Objective B and B1: Improving the legislative and financial environment for tourism, and reinforcing cooperation with Member States, the industry and other stakeholders

8.2.1. The ESC notes that while Objectives B and B1 are particularly important and touch upon very serious problems of the sector, the proposed actions, while very seriously conceived as thematic units, do not constitute fully fledged measures.

8.2.2. The role and scope of action of the Consultative Committee must be reviewed with the aim of making it a body which participates substantially in the formulation of European tourism policy, and in the monitoring and assessment of that policy.

8.2.3. The problem of funding of SMEs in the European tourism sector must be tackled directly, and that of its relations with the European banking system must be tackled institutionally. Similarly, support for SMEs in the European tourism sector through the various Community funds must take account of the special needs of the sector and consider it as a specific category.

8.2.4. The Philoxenia programme should place greater stress on the need for dialogue, settlement of disputes, reconciliation of interests, and arbitration. The ESC takes the view that, apart from the informal organization of regular meetings and round tables (as proposed in the draft programme), the European tourism industry requires reinforcement and rationalization, and possibly the establishment of instruments for dialogue between all the parties concerned, with the particular aim of heading off difficulties and, where appropriate, settling disputes.

8.2.5. The legislative framework and the financial environment of tourism must be tackled afresh with the aim of seeking harmonization among Member States as well as the strengthening and promotion of best practice. Cooperation between Member States must be encouraged by every means and at every level: from the level of consumer protection to that of safe travel and friendly service for the tourist on the various transport modes, at stations and airports and on the part of the police; and including the level of the strategy to tackle the considerable problems of tourism, such as seasonality, environmental pollution, funding of SMEs and competitiveness.

8.3. Objective C: raising quality in European tourism

8.3.1. Objective C of the programme seeks to tackle two key questions of European tourism:

- the question of sustainable development;

- the removal of the obstacles to the development of tourism. (The title of this chapter appears ill-chosen because it does not correspond to the content).

8.3.2. As regards pursuing a policy of sustainable tourism development, the ESC is undoubtedly in agreement. However, the ways in which such a policy should be formulated and implemented remain an open question. First of all, it requires a critical view of the established, prevailing model of tourism development which can hardly or very seldom be reconciled with the logic of sustainable development.

8.3.3. A more general policy context must be defined within which to base the organization of tourism and the supply of products of 'sustainable orientation`.

8.3.4. Questions such as the European land-use planning development initiative, transport, telecommunications, mass tourism policy and policy on special forms and categories of tourism must be tackled with a view to sustainable development.

8.3.5. Moreover, sustainable development cannot depend on the intervention of the public sector and of the tourism industry alone. For sustainability to be established in tourism, in theory and practice, the participation of society as a whole is required. What is needed is a European campaign approaching the issue at the academic and mass media levels, and in terms of organization of work, of recreation and free time, and of everyday culture. The direct, in-depth correlation of culture with tourism, and of cultural measures with tourism at local, national, regional and European level is essential.

8.4. C2: Removing obstacles to tourism

8.4.1. Developing alternative, specialized forms of tourism is certainly one way to contribute to the growth of the tourist industry. It should also be borne in mind that a single European currency would remove many obstacles in European tourism.

8.4.2. The ESC regards it as useful for new forms of tourism to be encouraged. For example, instructive or educational tourism can act as a factor for sustainable tourism development, both for intra-European tourism and incoming tourism. Agro-tourism is now a recognized activity. The same encouragement ought to be given to tourism related to fishing and boating on rivers, lakes and around small fishing areas.

8.4.3. In addition to operating all year round - although rather less during the academic holidays - conference- and science-related tourism is one of the most profitable and employment-generating sectors of tourism.

8.4.4. Tourism for the elderly, linked or not with therapeutic tourism, could offer one solution to the problem of seasonality as well as to the problems of the elderly such as exclusion, isolation and the need for recreation. The specific needs of handicapped people should also be taken into account in every country.

8.4.5. Religious tourism can be developed at many levels and would open up a market which has been little developed so far (for example itineraries following the steps of St. Paul, or Luther, or linking several monasteries etc.).

8.4.6. It is useful for local initiatives to be supported in the way proposed in the draft programme, so as to determine which categories of problems can be tackled locally and which require regional, national, international, or pan-European action.

8.4.7. It is however clear that the extent of the problems of tourism under each proposed heading is such that the proposed actions can only indicate certain clear pathways to follow - ways of tackling the problem rather than an overall solution to it.

8.5. Objective D: Promoting Europe as a tourist destination

8.5.1. On this Objective the ESC would point out that increasing the numbers of visitors from third-countries would result from all the foregoing actions, and not only from promotion.

8.5.2. The creation of demand for products which only Europe can provide, and indeed of sustainable demand for those products, can contribute substantially to achieving the objective of sustainable development. For example, cooperation between European universities or Ministers of Education with a view of establishing European standards for recognized subjects at secondary and university level or studies on Europe can create a permanent flow of visitors. Studies on European history, European art or archaeology cannot be completed without studying at a European university.

8.5.3. The offices of the European Union around the world could be strengthened with a staff responsible for tourism questions. The various centres for promoting national cultures and languages of the Member States of the Union, such as the British Council, the Goethe Institute, etc., which are now found throughout the world, could work together and be developed further in the context of the promotion of European tourism.

8.5.4. Of the twenty main cities in the world which offer conference tourism, eighteen are in Europe. This means that Europe can satisfy various requirements of tourism demand, not only those of historical and cultural interest.

8.5.5. Ways and means must be studied for the promotion of Europe's long-term effectiveness. The choice from a European standpoint of target groups must be different from that of national tourism organizations and tour operators.

8.5.6. Cooperation among national tourism organizations can produce very good results. For example, the Alps as a region could be promoted through international cooperation. The same applies to the Mediterranean, or to the Nordic area.

8.5.7. Instead of merely seeking tourist custom, making full use of Europeans living around the world can be a permanent way of promoting Europe.

9. Conclusions

9.1. Despite the efforts of the European Commission in defining and analyzing the various problems and the improvements achieved in the harmonization of statistics, there is still no specific and institutionalized European tourism policy.

9.2. The Philoxenia programme is intended to fill a fundamental gap. It inserts a number of earlier measures into a coherent structure with a clearly defined ultimate goal: How to improve economic results in the sector of tourism without spoiling our natural environment or the quality of human life.

9.3. With this programme the European Union is entering the historical stage of formulation and implementation of a coherent policy on tourism. The Economic and Social Committee regards the Philoxenia programme as a first, small but decisive step towards the future, and takes the view that the preparation of a second Philoxenia programme would constitute an essential commitment on the part of the Commission towards the European tourism 'family`.

Brussels, 26 September 1996.

The President of the Economic and Social Committee

Carlos FERRER

() OJ No C 222, 31. 7. 1996, p. 9.

() OJ No C 332, 31. 12. 1990.

() OJ No C 49, 24. 2. 1992.

() OJ No C 393, 24. 12. 1994.

() ESC Opinion, OJ No C 301, 13. 11. 1995.

() Price Waterhouse Study for the European Commission.

() World Tourism Organization (WTO) International Tourism Overview Highlights 1995, Madrid 1996.

() 'The Economist` 29. 7.-4. 8. 1995.

() OJ No C 153, 28. 5. 1996.

APPENDIX to the Opinion of the Economic and Social Committee

The following amendment which received at least one quarter of the total votes cast, was defeated in the course of the debate:

Paragraph 7.6

Add the following:

'In this respect, the Committee calls on the Commission to set up an investigation into child labour in Pakistan which is already the subject of proceedings initiated under Articles 9 and 10 of Regulation (EC) No 3281/94, following a series of complaints.`

Reason

Self-evident.

Result of the vote

For: 30, against: 39, abstentions: 19.