Tir <r 
& -6-COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 30.04.1996 
COM(96) 166 final 
REPORT ON THE EVALUATION OF THE 
COMMUNITY ACTION PLAN TO ASSIST TOURISM 1993-95 
COUNCIL DECISION 92/421EEC 
(presented by the Commission) 

I INTRODUCTION 
1. The three year Community Action Plan to Assist Tourism, agreed on 13 July 1992, 
recognised the importance of tourism and set out a framework to enable the Community to 
specifically assist its development1. The Action Plan to Assist Tourism (hereafter 'the Plan') 
broadly stated that Community action should: 
strengthen the horizontal approach to tourism in Community and national policies; 
implement specific measures; and 
coordinate the measures undertaken by other Commission departments. 
The Plan recognised the Community's role in improving the quality and competitiveness of 
tourism and that a joint approach to tourism by the Community and the Member States 
could promote the wider development of the Community in both economic and social terms. 
2. The purpose of this document is to report on the evaluation of the Plan. This is pursuant to 
Article 6 which states that the Commission shall undertake such an evaluation and report to 
the Council and the European Parliament. The date specified in Article 6 for the production 
of this report was 30.6.95. While this timetable has not been met the delay has allowed for a 
more comprehensive evaluation of the Plan than would have been the case had the original 
timetable been followed. Even taking account of this delay however the external evaluator 
was only able to fully evaluate the results of the first two years of the Plan, which represents 
55% of total expenditure commitments made under the Plan. Actions financed in the second 
year of the Plan were in general only completed at the end of 1995 while most actions 
financed in 1995 were started at the end of that year. 
3. This document responds to an independent evaluation of the Plan undertaken by external 
consultants. Their final report was accepted by the Commission on 26.2.96 and has the 
following structure: 
Summary of Findings and Key Recommendations 
Section 1 Introduction 
Section 2 Programme model of the Plan 
Section 3 Technical evaluation of actions 
Section 4 Administrative and operational aspects 
Section 5 Assessment by contractors 
Appendices 
4. The Commission responds here to the Consultants' Report using the framework developed 
by the Consultants in the first part of their Report entitled 'Summary of Findings and Key 
Recommendations'. All the points discussed in detail in the body of the Consultants' Report 
are contained in that Summary, and are set out in the following order: 
The Contents of the Programme (Paragraphs 2-6 / pg. i) 
The Role and Market Positioning of the Tourism Unit ( Paragraphs 7&8 / pg ii) 
1 Council Decision 92/421/EEC, OJ L231 of 13.8.92 
Compliance with Article 4 of the Action Plan and Achievement of Objectives (9-12) 
Technical Evaluation (13-33) 
Administrative and Operational Aspects (34 - 41) 
Key Recommendations (42 - 60) 
5. Sections II to VII of this document therefore deal sequentially with all the issues raised by 
the Consultants in their 'Summary of Findings and Key Recommendations'. Where reference 
numbers are given below these relate to paragraphs contained in the Consultants' Summary 
although more detailed comment can also be found in the later sections of their Report. 
Three annexes complement this Report. Annex 1 gives supplementary information on the 
Plan and its administration; Annex 2 gives a breakdown of the expenditure commitments 
made under the Plan; and Annex 3 is the Consultants' Report. 
6. The Consultants were not called upon to specifically investigate the allegations regarding 
the conduct of affairs in the Tourism Unit in the period prior to March 1994. Enquiries by 
the Commission, the Court of Auditors and other authorities are still proceeding. The 
Consultants were, however, asked to bear in mind the effect which these allegations and 
enquiries had on the overall effectiveness of the implementation of the Plan. 
II THE CONTENTS OF THE PROGRAMME 
7. The Commission welcomes the evaluation undertaken by the Consultants and agrees with 
the substance of many of the issues identified. This is particularly the case in respect of the 
Consultants' analysis of the contents of the programme. Paragraphs 2 to 5 outline 
weaknesses in the structure of the Decision which caused difficulties throughout the lifetime 
of the Plan. These include the following: 
i) fragmented and incoherent Measures (set out in the Annex of the Plan); 
ii) confusion between ends (or objectives) and means (the measures); 
iii) lack of clarity on how some of the actions would contribute to wider objectives; 
iv) incomplete or overlapping measures; 
v) over ambition given the available resources, 
vi) lack of continuity over the 3 year period. 
8. The Commission broadly agrees with these criticisms. The Commission views the Plan 
however as the outcome of a long discussion which resulted in a number of competing 
priorities. Tourism policy as such does not exist and a specific tourism 'strategy' at EU level 
is at a formative stage. The differing views and priorities of the Member States; the complex 
nature of the different interests associated with tourism; the lack of previous specific action 
at EU level; the subsidiarity principle; and the requirement for unanimity within the Council 
all served to shape the Plan. The Commission accepts that the measures would have 
benefited from further analysis by both Commission and Management Committee before 
implementation. This proved difficult due to its relatively short-term nature and the 
constraints imposed by budgetary rules applicable during the first year (differentiated 
appropriations). 
The Commission will take account of all the aspects noted by the Consultants in the 
drafting of any new programme. In particular there will be: 
• an unambiguous and logical link between objectives and measures; 
• a reduced number of clear and focused measures; 
• realism given available resources; 
• clear added value to existing actions taken by both Member States and other 
Commission services; 
• coordination with other Community actions; 
• respect for the principle of subsidiarity; 
• a logical work programme to ensure continuity of actions 
in THE ROLE AND "MARKET POSITIONING" OF THE TOURISM UNIT 
9. Paragraphs 7 and 8 of the Consultants' Report refer to the role and mandate of the Tourism 
Unit. There was, in the view of the consultant, a lack of market positioning. The 
Commission is in broad agreement that this remit should be defined with greater focus and 
clarity in the future but would also point out that role and mandate is dependent upon the 
content of any Decision which is agreed. Certainly the experience gained with both the Plan 
and the consultation on the Green Paper on the role of tourism in the Union2 has assisted 
with the definitions of any future role and function. A number of specific options are given 
in the Consultants' Report on the type of role which could be undertaken by the Tourism 
Unit. 
The Commission will ensure that the Tourism Unit concentrates mainly on the 
specific role of ensuring greater coordination of all Community actions affecting 
tourism. This will be achieved by the: 
• further development of internal coordination mechanisms; 
• active cooperation and partnerships with Member States and the tourism 
industry; 
• regular identification o£ and consultation on, specific issues of concern. 
COM (95) 97 of 4.4.9 5 
IV COMPLIANCE WITH ARTICLE 4 AND ACHIEVEMENT OF OBJECTIVES 
10. Paragraphs 9 to 12 of the Consultants' Summary state that the objectives (contained in 
Article 4 of the Plan) are at a high level and sometimes vague. The Consultants identify that 
the 11 measures ("Policy Areas") were never clearly linked to these objectives which were 
both high level and too broad. In addition it is apparent that intermediate objectives and 
performance indicators were either missing or were poorly defined. The Commission is in 
agreement with this analysis and accepts that the nature of the Plan made it difficult to 
implement. The Consultants recognise that the attainment of these high level objectives, 
given both resources and framework, was not realistic. 
11. The Consultants note however that particular initiatives were successful, such as work on 
statistics and coordination, and that these successes made a contribution to the attainment of 
the intermediate objectives expressed in the Plan. The 'Programme Analysis' undertaken by 
the Consultants also reveals that objectives were confused with mechanisms, particularly in 
the case of Transnational Measures' which featured as a measure in the Annex. This analysis 
revealed the value of a continuous evaluation of the objectives. Such an evaluation includes 
analysis of the objectives in terms of their coherence and links to performance indicators and 
targets. This analysis will be undertaken by the Commission on an ongoing basis. 
Based on the lessons learnt the objectives of any new programme will be set out in 
a hierarchy as follows: 
• Long term objective. 
• Medium term objectives 
• Short term objectives linked to tasks 
• Specified performance indicators enabling progress towards the objectives to be 
measured 
• Targets to measure effective completion of objectives 
V TECHNICAL EVALUATION 
12. Paragraphs 13 to 33 of the Consultants' Summary show the results of the technical 
evaluation. This included an assessment of all projects funded in 1993 and '94 and 10 case 
studies. The main points noted by the Consultants on the technical side are that: 
i) The quality of projects was low in 1993 but improved significantly in 1994; 
ii) The impact of actions was limited in space, scope and time; 
iii) The work on statistics was successful; 
iv) Studies were usually well executed although lacked clear analysis of needs; 
v) Built in post-project sustainability was often not well considered and some projects 
appear to have been largely designed to access EC Funds. 
vi) The commercial application of some projects does not appear to have been well 
thought through; 
vii) Publications relating to tourists with disabilities have produced excellent results; 
viii) Pilot projects on culture, technology and training have produced varied results, 
ix) The work on coordination made a positive contribution to reaching certain 
intermediate objectives, 
x) SMEs were not well enough considered in some actions, such as technology. 
These 10 findings are considered separately below. 
13. The Commission is confident that the methodology employed by the Consultants has 
resulted in an accurate technical assessment. The Commission recognises that project 
quality was low in 1993 and welcomes the fact the quality of projects improved 
significantly between 1993 and 1994. It is also to be recalled that the Consultants have 
judged that a further improvement is likely with the 1995 work. The Commission believes 
however that there are a number of presentational points in the Consultants' Report which 
may not always result in the most accurate view being given. For example the data 
presented in Table 3.1 (pg. 13) does not correspond with comments made in 65 (pg. 17). 
Here it is stated that the quality of projects is 'poor to average' while Table 3.1 indicates that 
this is not the case and the number of good or very good quality projects is significant, 
reaching 44% in 1994. 
14. The Commission notes the Consultants' view that the impact of actions was limited in 
space, scope and time and accepts the principle that a smaller number of larger actions is 
desirable. However the Consultants point out that the number of commitments made were 
too many in relation to the size of the Unit and this statement largely fails to take into 
account that many commitments were related to the same subject using standard contracts 
where the project management is reduced due to their similar nature. For example 40 of the 
75 commitments in 1995 related to statistics and many of these were made under identical 
conditions to each Member State. 
15. The Consultants also comment in 16 that actions taken were too small to make a significant 
impact It is not however suggested at what level of funding the actions would become 
more 'significant'. This comment is then partially contradicted with a recognition that some 
small actions have been successful and cost-effective. The Commission views this statement 
as one which is rather simplistic (given the many variables which can impact on project 
effectiveness) and believes that certain types of small action can be very significant due to 
the multiplier effect. 
16. The Commission notes the Consultants' judgment that the work on statistics has been 
successful. This work, undertaken via a partnership with the industry, resulted in the 
agreement of a Directive on the gathering of comparable data at Member State level across 
the EEA3. The fulfillment of this widely recognised need has been a significant achievement. 
Further work on this topic will continue over the next years. 
3 Council Directive 95/57/EC of 23.11.95 (OJ L 291 of 6.12.95) 
17. The Consultants note that studies were usually well executed although lacked a clear 
analysis of needs. (Here 'studies' are defined as research work which is 100% funded by the 
Commission). The Commission accepts that this was the case in some circumstances and 
that this was partly a because of shortcomings with the Plan itself already noted. 
Additionally the Consultants' Report acknowledges that studies have been agreed or 
proposed by the Management Committee and usually. discussed with the sector. The 
procedure for proposing and selecting studies has been modified in such a way that after 
1994 only studies which were based on a clear assessment of requirements and outputs have 
been progressed. 
18. The Consultants note that there was a lack of built in post-project sustainability with some 
projects. The Commission would make the following points. 
Projects of the type requested are usually demonstrative, aiming to encourage others 
to do similar work. They should however be suitable to become longer term actions; 
Innovative projects are more likely to have a higher failure rate than other forms of 
intervention due to the nature of the action; 
Many of the impacts of the projects will occur in the medium term and have not been 
picked up in the evaluation, which examined directly measurable outputs; 
Many of the impacts are dependent on effective publicity which will be continued. 
This said the Commission is clearly concerned to ensure that the impact of its financial 
support is as effective as possible. The 1995 series of projects has taken on this issue and 
revised selection procedures have improved the quality of projects selected. The 
Consultants note that reference publications can become out of date rapidly and the 
Commission agrees that such publications should have sustainability built in. The 
Consultants also judge that some projects appeared to have been designed to "access" EC 
funds. This refers to a small number of projects selected in 1993 which were subsequently 
shown to be of poor quality. The Commission agrees with this and would state that no final 
payments have yet been made on these projects pending further assessment. 
19. The Consultants note that the commercial application of some actions do not appear to 
have been fully thought through. Earlier in paragraph 18 the Consultants divide actions into 
those which promote 'European' concepts and those which are 'commercially interesting'. 
While the Commission agrees that commercialisation can be desirable it does not hold the 
view that this was the main goal of the Plan. Indeed networks and other initiatives which 
promote information exchange and greater knowledge are vital and cannot always be made 
immediately commercially feasible. Aspects such as accurate European-wide statistics and 
specific research are preconditions to ensure the industry's success. There is also a clear role 
for the public sector in certain areas, such as the environment, where the use of subsidy to 
ensure the conservation of public goods is widely accepted. 
20. The Commission notes that the publications relating to tourists with disabilities have 
produced excellent results. The Commission would also add that a variety of other 
initiatives, such as the tourism and environment prize, and the coordination function with 
other Services have also created a significant and positive impact. 
21. The Consultants state that the pilot projects on culture, technology and training have 
produced varied results. These fields of activity were those with the most projects and 
represented considerable expenditure, the details of which are set out in Annex 2. The 
Commission would question the Consultants' view stated in the body of the Report that the 
cultural projects have reduced or diverted demand from other areas. This statement cannot 
be made with great accuracy at present and may fail to take into account overall and niche 
market growth. The Consultants note that certain technology projects have had a positive 
impact in accelerating the application of new technology. The Consultants comment on the 
'one-off training actions undertaken in Central & Eastern Europe (27) and accept that they 
may have been effective but were considered rather in isolation. Nevertheless the 
Commission considers this type of training to be of benefit and holds the view that adequate 
coverage in other similar regions is as important as follow-up in the region where training 
has taken place. The Commission accepts however that there remain issues to be examined 
relating to dissemination, post project follow-up and longer-term impacts. Further 
dissemination of results, continuing with partnerships where appropriate will create publicity 
and encourage follow-up action. 
22. An area positively evaluated is that of coordination of other Commission policies with 
tourism objectives (see Paragraph 11). This work is seen by many as the most important 
aspect of the Plan. The results of this wide ranging task have been varied but specific 
initiatives such as the reports on matters affecting Tourism4 and a number of working 
partnerships with other services have been particularly successful. An example is the 
coordinating group on tourism for people with special needs, which served as a link 
between the Plan and the Helios II programme. An area where the Commission still needs to 
increase the direct influence of the Tourism Unit is on other established Community 
programmes, which often have a substantial tourism component. In the interests of 
improved coordination the Commission is now holding more specific and thematic meetings 
with the sector where policy implications can be discussed with the services responsible and 
independent experts. 
23. The Consultants note in 33 that one issue which was not adequately addressed was the 
relevance to SMEs of the technology projects and other actions. While recognising that 
tourism SMEs have not been the subject of a specific call for proposals, the Commission 
would recall that some work, such as that on 'Yield managment in Small and Medium sized 
Enterprises in the Tourism Industry', did seek to examine how the application of technology 
could be applied by SMEs. 
24. One major action on Promotion in Third Countries was launched in 1993 at a cost of 1 
MECU. The action consisted of the development of an image for Europe and a publicity 
campaign. The concept was to present various common European themes under one 
'umbrella'. The project suffered from a lack of coordination with other campaigns run 
presently by the European Travel Commission, (ETC) a representative organisation of 
various National Tourist Organisations (NTOs). While the technical quality of the work was 
COM (94) 74 of 6.4.94 & COM (96) 29 of 5.2.96 
high, the value for money as measured by direct responses was low. This was largely due to 
lack of sponsorship, which had been anticipated in the original proposal, but which was not 
forthcoming. Second, in 1994 a market research project was jointly funded. This consisted 
of research on the demands of the major and emerging markets outside Europe and was 
recognised by the Consultants as a useful addition to current knowledge in this area. Third, 
in August 1995 a call for proposals was published relating to a promotion action in Japan. It 
had been hoped to transfer the necessary funds from the general budget line of the Plan or 
finance the action from 1996 funds. In the event neither of these options was possible and 
the campaign was not implemented, although the required sponsorship funds had already 
been guaranteed. All the recommendations made by the Consultants on promotion will be 
taken into account in future actions. 
In summary the Commission: 
• welcomes the recognition that significant improvements in project quality were 
made over the period of the Plan; 
• accepts that a smaller number of larger projects is a sound principle; 
• accepts that greater account should be taken in any future activities of the 
analysis of study needs, project sustainability and commercialisation; 
• will take account of the points made on the technology, training and cultural 
projects in order to ensure that they provide greater impact and added value 
within any further specific actions; 
• continues to pursue work on the dissemination of project material; 
• has already, or intends to, recover sums paid to certain projects. 
VI ADMINISTRATIVE AND OPERATIONAL ASPECTS 
25. In March 1994, following an inquiry into affairs in the Unit by DG XXIII and a subsequent 
internal audit by the responsible Directorate General, the Head of the Tourism Unit was 
transferred to another service and subsequently suspended. In July 1994 a Temporary Agent 
was also suspended and both these members of staff were later dismissed. Following further 
work by the Commission's anti-fraud service these matters were later referred to authorities 
in a number of Member States which are now conducting an investigation into allegations of 
fraud. The results of these actions had great significance, both in terms of the administration 
of the remainder of the Plan and for the quality of some of the work which began in 1993. 
26. Paragraphs 34 to 41 of the Consultants' Summary show the findings of the administrative 
evaluation. From this the following is apparent: 
i) Administrative arrangements and procedures were weak at the start of the Plan but 
have significantly improved; 
ii) The administrative load is unfavourable in relation to direct tasks such as project 
monitoring etc.; 
iii) DGXXIII communication lines are lengthy and slow; 
iv) There has been high staff turnover, a lack of tourism expertise, poor staff training and 
understaffing of the financial administration; 
v) The procedures used to implement the Plan were too burdensome given resources; 
vi) Financial management was poor during the first part but has improved. 
The Commission accepts these findings and would add that many of these issues have now 
been addressed. It is also the case that the events during the first part of the Plan created 
considerable operational difficulties for the rest of the period. 
27. As regards weak administrative arrangements and procedures the Consultants note that 
actions have been taken by the Commission to ensure improvement. This included reviews 
and strengthening of: 
Specifications of calls for tender and proposals 
Standard contracts and declaration forms; 
Selection procedures both for studies and pilot projects; 
Monitoring systems 
Post-project evaluation systems 
Payment control systems 
28. These changes have resulted in a much improved operational system. In addition some of 
the purely administrative load has been reduced and a further review is in process which 
will enable desk officers to devote more time to direct project management. These measures 
include: 
Production of an external reference guide for project directors; 
Production of internal guidance for Desk officers within the Unit; 
Updating and improving the register of external consultants; 
Establishment of databases and other computerised systems for archiving etc. 
29. The Consultants note in 37 that DGXXIII communication lines are lengthy and slow. This 
issue has been addressed by the recent approval of a new organisational structure which will 
incorporate a number of major changes. This includes the strengthening of the financial 
administration with a separate Unit, at the level of the Directorate General, concerned with 
budget and internal control. Another new Unit will be responsible for legal affairs and 
contracts. There will also be structural changes within the Tourism Unit itself. 
30. In 38 the Consultants identified problems of high staff turnover, a lack of tourism expertise, 
poor staff training and understaffing of the financial administration. Some of these 
problems were caused or compounded by events during the first part of the Plan. The Unit 
has improved staffing, with a higher proportion of officials who are complemented by a 
number of tourism related national experts. The training needs of staff are examined on a 
regular basis. 
10 
31. As regards the burdensome procedures used to implement the Plan the Unit is reviewing 
options for efficiently adapting the administrative work in order to further improve quality 
of outputs and cost-effectiveness while ensuring compliance with standard Commission 
procedures. It is evident from the above actions taken by the Commission that the financial 
management which was poor during the first part of the Plan has now been substantially 
improved. 
In summary changes made to administrative aspects include: 
• strengthened procedures relating to all aspects of project selection; 
• improved monitoring, control and evaluation systems; 
• new organisational structure which includes new Units responsible for budget 
control and contractual matters; 
• an increased number of officials working with tourism national experts. 
VII KEY RECOMMENDATIONS 
32. The key recommendations are contained from paragraphs 42 to 60. The Consultants note 
that action has already been taken on many of their recommendations. As the Commission 
has already responded to many of these points this Section only comments on those areas 
which have not yet been covered, namely: 
i) the need for greater partnership and meetings based on specific issues; 
ii) dissemination of results via the Committees in existence; 
iii) identification of needs by independent experts; 
iv) the greater use of performance indicators; 
v) greater autonomy in certain operational areas; 
vi) the annual cycle of the Plan; 
vii) priorities for 1996; 
viii) guidelines for a future tourism programme. 
33 The issue of partnership with external organisations is one which the Commission has 
already developed further in 1995. The Commission accepts however that existing 
arrangements with the industry are not yet ideal and will work with the various interests 
concerned to ensure that relationships are improved. Close partnership with the tourism 
industry will be a key element of any new programme. 
34. Likewise some of the ways to increase cooperation mentioned in the Consultants' Report 
have already been progressed. The Commission agrees that a key value-added element 
11 
comes with the dissemination of results. It will examine with the various committees how 
best this is undertaken. The committees will continue to advise the Unit on the 
identification of needs and ensure that EU funding does not duplicate existing activities. 
Other experts, in the form of smaller technical working groups, will continue to be 
consulted. The Commission is in full agreement with the greater use of performance 
indicators and targets and will build these into any new programme. 
35. As far as greater autonomy in certain operational areas for the Unit is concerned this issue 
will be examined when the new organigramme is in place. The Commission is in broad 
agreement that purely operational issues should be addressed at Unit level wherever 
possible. As regards the annual cycle of the Plan this issue has been addressed in 1995 
where projects are now of a longer term - up to 3 years in length and this approach will be 
continued. The proposals of the Consultants relating to the priorities for 1996 (paragraph 
59) have already been applied. The Guidelines for a future tourism programme (Paragraph 
60) have been considered in the drafting of the proposal for the new Programme. 
In summary the Commission 
• wishes to strengthen its partnership with the tourism industry; 
• will examine with the relevant bodies how information and projects can be 
better publicised and be of greater practical use to the tourism industry; 
• will ensure that needs for studies and other work are fully assessed prior to 
publication of tender specifications; 
• is currently examining how the Unit can function with greater effectiveness 
within the framework of the new organisational structure. 
vm CONCLUSIONS 
36 In general the Commission agrees with and, despite the criticisms, welcomes the overall 
assessment of the Consultants' Report. The complexity of tourism at EU level, together with 
the widely diverging views of Member States and European Parliamentarians on how best 
to develop policy in this area, made it difficult to maintain coherence within the Plan. This 
was particularly reflected in its Annex which was diverse and ambitious, especially when 
viewed in relation to the objectives and the available budget. 
37. The goals of the Plan were first, to achieve better coordination and knowledge of the 
industry, and secondly, to stimulate innovation, create additional activity and encourage 
exchanges of information and transfer of experience. The encouragement of innovation and 
the transfer of experience was to a certain extent achieved by the joint-funding of pilot 
12 
projects (which always involved at least 2 transnational partners and usually more), and the 
creation of networks. Work on the dissemination of the results of pilot projects will 
continue, and the maintenance of networks will encourage the replication of best practice, 
transfers of experience and coordinated efforts throughout the Community. 
38. The technical quality of the actions progressed was not always good. The evaluator 
recommends that a smaller number of larger projects fulfilling an identified need is required. 
This could increase the technical and political impact of expenditure and would reduce the 
administration of this expenditure at the level of the Unit. Without doubt, the extraordinary 
circumstances that prevailed during the first 18 months of the Plan's operation, and which 
ended in changes to Tourism Unit staff, affected its overall performance. This is evident in 
the poor results of certain projects. Improvements made during 1994 and 1995 have had a 
positive impact. 
39. Other initiatives launched during the lifetime of the Plan, such as the Green Paper on the 
role of the Union in tourism and various intergovernmental tourism meetings, stimulated 
wide consultation specific to tourism. Indeed the conclusion of the majority as a result of 
these initiatives was that a consensus does exist as to the appropriateness of ensuring 
continuing Community action in the field of tourism, rationalising this activity and possibly 
deepening it. 
40. The Commission believes that the Plan, while being of an experimental nature, nevertheless 
established a framework which provided a useful context for practical action. The Plan has 
been successful in establishing links between Commission services, Member States and 
other regional and sectoral interests. It has also provided the basis on which partnerships 
with the industry can be increased and further developed. The development of robust and 
effective policies to assist tourism is a challenging task. The diversity, nature and enormous 
potential of tourism requires appropriate action at many different levels: local, regional, 
national as well as European. Only concerted and complementary efforts will help to ensure 
a competitive, high quality and sustainable tourism industry. 
41. This report has shown that the Community Action Plan to Assist Tourism has had both 
shortcomings and positive effects. It has served as a useful basis that has indicated the type 
of future actions which may assist this vital industry. The Commission therefore is 
submitting with this Report, a proposal for a first Multiannual Programme in favour of 
tourism . 
ANNEX 1 
Background to the Community Action Plan to Assist Tourism 
Al. Prior to the Council Decision of 13.7.92 administrative arrangements relating to tourism 
were based on a Council Decision of 22.12.86 which established a consultation and 
cooperation procedure in the field of tourism, specifically an Advisory Committee made up 
of representatives of the Member States5. This Committee continues to exist and ran 
concurrently with the Management Committee set up under the Action Plan. 
A2. The Plan came into operation on 1.1.93 with a duration of 3 years and a proposed budget of 
18 MECU. The measures undertaken were to be consistent with the principle of subsidiarity 
and to be progressed by reference to criteria set out in Article 4. Given the diverse nature of 
tourism the Plan was concerned with strengthening the horizontal aspects of the sector 
generally and improving its coordination within the Commission. It made therefore specific 
reference to the requirement to produce an annual report which evaluated the Community's 
activities which affected tourism and stressed the requirement for other related actions. The 
Plan also included as an Annex a list of 11 measures which established a range of priorities 
which were themselves divided into sections specifying particular actions. This Annex also 
set out which of these actions were to be taken forward in 1993. 
A3. In summary the principal objective of the Plan was to assist the sector's development by 
encouraging and strengthening the coordination of Community actions affecting tourism and 
by implementing a range of specific measures. The latter were pursued by encouraging 
integrated actions which were to be transnational, additional, innovative and respectful of 
the principle of subsidiarity. These actions were to be progressed with reference to criteria 
by way of pilot projects, research studies, publications and other appropriate means. 
Administrative Arrangements 
A4. To assist the Commission with the execution of the Plan the Council Decision specified that 
a Management Committee be established composed of representatives of Member States. 
This Committee agreed priorities, delivered its opinion on annual work programmes and 
guided specific actions. The Management Committee first met in December 1992 and 
subsequently on 10 occasions over the 3 years of the Plan, (twice in 1993 and 4 times 
during the other 2 years). 
A5. In January 1994 membership of the Committee was widened to include the Member States 
of the European Economic Area, which includes Austria, Finland, Iceland, Norway and 
Sweden. Three of these States namely Austria, Finland and Sweden became members of the 
Union in January 1995 and at that time Liechtenstein also became a Member of the 
Committee. 
Council Decision 86/664/EEC, OJ L 384 of 31.12.86 
14 
A6. Prior to the Plan the Council Decision of 1986 had established an Advisory Committee 
made up of representatives of Member States. The Management and Advisory Committee 
meetings often met consecutively and were usually followed by meetings of representatives 
of the tourism industry. The Commission also organised separate meetings with 
representatives from the tourism private sector. Member States' representatives were 
generally invited to attend these meetings as observers. 
A7. The Plan was progressed via a series of annual work programmes based on the actions listed 
in the Annex to the Plan and agreed by the Management Committee. Various mechanisms 
were used to disburse the funds. These normally included published calls for tender 
(principally for 100% financed studies and other actions), and published calls for proposals 
(for co-financed pilot projects with a Community contribution). Further projects were 
supported via the responsible Directorate's Subvention Committee and in particular cases 
funds were disbursed via direct contract. Project selection procedures were mainly 
undertaken within the Tourism Unit with other services invited to participate where 
appropriate. In almost all cases Commission services alone were solely responsible for the 
selections made. Mechanisms designed to facilitate coordination included the establishment 
of an Inter-Service Group which met on 9 occasions (twice in '93, 3 times in '94 and 4 times 
in '95) and the development of specific technical meetings involving both the Advisory 
Committee and the tourism sector. 
Staff and Financial Resources 
A8. The average number of staff employed in the Tourism Unit was 16, of which 11 were 'A' 
Grade level. The ratio of permanent staff relative to total staff was 5:17 at the start of the 
Plan rising to 11:17 by the end of 1995. Staff turnover was 86%. The Unit was occasionally 
supported by other staff of the Directorate, and where appropriate and possible drew on 
available administrative and technical services from both the Directorate and elsewhere in 
the Commission. 
A9. Financial resources available were increased from the original estimated budget of 18 
MECU to a total of 21.71 MECU. This was due to an increase of 3 MECU in budgetary 
provision for 1995 and the inclusion of the EEA Member States which contributed 566.400 
ECU in 1994 and 141.300 ECU in 1995. Financial commitments amounted to a total of 
19.75 MECU. There was a 1.9 MECU shortfall in commitments (originally assigned for 
actions on promotion in Japan). 
The Work Undertaken 
A10. The Plan can be divided into actions which were concerned with improving the coordination 
of Community actions affecting tourism and those actions which were related to the 11 
annexed measures. In many cases these measures were also subject to initiatives to improve 
coordination and likewise the objectives and/or effects of many projects were to strengthen 
such coordination both at the transnational level and within specific technical areas. 
All. Activities relating to coordination were pursued in a number of different ways. These 
15 
included mechanisms to improve liaison and coordination within the Commission, and those 
targeted at the tourism industry or interests associated with its development. Mechanisms 
used were varied and included those initiated as a result of legal or institutional 
requirements, and those developed for pragmatic consultative or technical reasons. They 
included the following: 
The Management Committee 
The Advisory Committee 
An internal Inter-Service Group 
Established internal procedures 
Consultation with representatives from the tourism industry 
Meetings with National Tourist Organisations 
Ad-hoc groups of experts on specific subjects 
The 1994 Report on Tourism to the Council and European Parliament 
The 1995 Report on Tourism to the Council and European Parliament 
Conferences and exhibitions at tourism trade fairs 
Other conferences, presentations and publications 
Technical networks as the rationale or result of projects 
The Green Paper consultation process 
A12. The first year's work programme was specifically set out in the Annex to the Plan and the 
priorities progressed were as stated in that Annex. In Year's 2 and 3 the Commission 
proposed a programme based on the Annex, the budget available and on the requirements 
expressed by the Management Committee, the industry and other relevant interests. Over 
the period work on all the specified measures was undertaken. The degree to which each 
measure was progressed was dependent upon a range of factors including the priorities 
agreed by the Management Committee, the extent and similarity of work being undertaken 
by other Commission Services and the budgetary notes of the Parliament. 
A13. A number of changes were made to the annual programmes because of changing priorities. 
The Parliament identified a need to develop technical solutions relating to transport 
management in tourism, while an Environment Council held in Greece in 1994 expressed the 
importance of better information on tourism/ environment issues. Both these concerns were 
addressed in the 1995 call for proposals. The Parliament also invited the Commission to 
examine the issue of so called 'sex tourism' involving the abuse of minors. The Commission 
therefore submitted working papers to the Management Committee and consulted with the 
sector on this topic. 
16 
ANNEX 2 
Expenditure Commitments made under the Plan 
A14. This annex gives a breakdown of expenditure commitments according to three categories: 
by each of the 11 measures; by the type of mechanism used to select projects; and by the 
type of organisation which received the funds. It should be stressed that these commitments 
do not always reflect the number of actions carried out. For example the Tourism and 
Environment prize included the disbursement of funds via direct contract to relevant 
organisations in 17 participating states even though this was essentially one action, albeit a 
major one. 
A15. Annex 2a shows a breakdown of the number of commitments made and the level of 
expenditure for each year by each of the 11 measures specified in the Annex of the Plan. Six 
of the measures absorbed 95% of the budget. The majority of expenditure was made under 
the measures 'Improving Knowledge' (37% of the total budget), especially concerning 
statistics where expenditure until 1997 has been provided and which accounted for 27% of 
total expenditure. 'Transnational Measures' accounted for a further 16% of expenditure; 
'Tourism and the Environment' (14%); and 'Cultural Tourism' (13%). Two other measures 
that recorded significant expenditure were 'Training' and 'Promotion in Third Countries' 
(7% and 8% of total commitments respectively). The remaining 5% was spent on the other 
5 measures. 
A16. Annex 2b gives a breakdown of expenditure commitments by selection mechanism. Calls for 
proposals seeking co-financed projects were published in all three years relating to 
Transnational Actions (annually); Cultural Tourism (twice); Training (once); and Tourism 
and the Environment (once). A total of 43% of the Plan's funds was disbursed using this 
procedure. Seven per cent of the funds were disbursed via the Directorate's Subvention 
Committee. Open calls for tender were published in all three years and related to various 
studies, publications and major initiatives funded entirely by the Commission. A total of 
22% of the funds was spent via this mechanism. Approximately 26% of the funds were 
awarded via direct contract, most notably to the Member States. 
A17. Annex 2c gives a breakdown by type of organisation which benefited from the funds. The 
main categories are: Public Sector; NGOs/Associations; Universities/Research Institutes and 
the Private Sector. Because of the widely differing nature and type of tourism bodies and 
the varied options for their definition this Annex should be treated with caution. However 
on this basis it is evident that around 33% of the funds were disbursed to the public sector; 
14% to NGOs/Associations; 6% to universities; and almost 48% to the private sector. 
ANNEX 2A 17 
No. of Commitments by 
Measure 
1. Improving knowledge 
a) Statistics 
b) Studies 
c) Consultation 
Sub-total 
2. Staggering holidays 
3. Transnational 
a) Transnational 
b) Technology 
c) PECO 
Sub-total 
4. Tourists as Consumers 
5. Cultural Tourism 
6. Tourism/Environment 
a) Prize 
b) Projects 
Sub-total 
7. Rural Tourism 
8. Social Tourism 
9. Youth Tourism 
10. Training 
11. Promotion* 
12. Unclassified/ Mise 
Total All Measures 1993 
Number 
2 
4 
5 
11 
0 
6 
9 
3 
18 
0 
18 
1 
0 
1 
1 
3 
1 
2 
1 
3 
59 ECU (000) 
399 
302 
188 
889 
0 
458 
1448 
302 
2208 
0 
1262 
382 
0 
382 
120 
175 
10 
197 
1000 
25 
6268 1994 
Number 
1 
2 
3 
6 
2 
0 
1 
2 
3 
1 
12 
17 
1 
18 
1 
0 
2 
10 
1 
2 
58 ECU (000) 
249 
726 
211 
1186 
80 
0 
114 
61 
175 
161 
1245 
236 
50 
286 
80 
0 
218 
1259 
30 
30 
4750 1995 
Number 
40 
4 
5 
49 
0 
0 
0 
6 
6 
0 
1 
5 
9 
14 
0 
2 
0 
0 
1 
2 
75 ECU (000) 
4656 
266 
312 
5234 
0 
0 
0 
822 
822 
0 
66 
203 
1829 
2032 
0 
70 
0 
0 
500 
12 
8736 Total 
Number 
43 
10 
13 
66 
2 
6 
10 
11 
27 
1 
31 
23 
10 
33 
2 
5 
3 
12 
3 
7 
192 ECU (000) 
5304 
1294 
711 
7309 
80 
458 
1562 
1185 
3205 
161 
2573 
821 
1879 
2700 
200 
245 
228 
1456 
1530 
67 
19754 %of 
Budget 
26.9% 
6.6% 
3.6% 
37.0% 
0.4% 
2.3% 
7.9% 
6.0% 
16.2% 
0.8% 
13.0% 
4.2% 
9.5% 
13.7% 
1.0% 
1.2% 
1.2% 
7.4% 
7.7% 
0.3% 
100.0% Av. Cost 
Of Action 
123 
129 
55 
111 
40 
76 
156 
108 
119 
161 
83 
36 
188 
82 
100 
49 
76 
121 
510 
10 
103 
* NB: The Promotion project started in 1993 was undertaken at a cost of IMECU. The figure of 500.000 ECU specified in 
1995 relates to this project and was an administrative provision. 
ANNEX 2B 18 
Number of Commitments by 
Type of Selection Mechanism 
100% Funded Actions 
Open Calls for Tender 
Major Initiatives 
Research Studies 
Publications 
Statistics 
Sub-total 
Restricted Calls for Tender 
Conferences 
Direct Contract (Member States) 
Statistics 
Environment Prize 
Conferences 
Sub-total 
Direct Contract (Other) 
Expert Groups: Travel etc 
Publications 
Other 
Sub-total 
Sub-total: 100% Funded Actions 
Jointly-Funded Actions 
Calls for Proposals 
Open: Pilot Projects 
Restricted: Pilot Projects 
Sub-total 
Subvention Committee 
Pilot Projects: 
Publications 
Conferences 
Research Study 
Other 
Sub-total 
Sub-total: Joint financed actions 
Total AH Mechanisms 1993 
Number 
2 
1 
4 
2 
9 
1 
0 
0 
0 
0 
0 
0 
0 
0 
10 
35 
0 
35 
7 
1 
5 
1 
0 
14 
49 
59 ECU (000) 
1382 
200 
201 
399 
2182 
110 
0 
0 
0 
0 
0 
0 
0 
0 
2292 
3173 
0 
3173 
684 
23 
85 
11 
0 
803 
3976 
6268 1994 
Number 
0 
2 
2 
1 
5 
2 
0 
17 
1 
18 
1 
0 
0 
1 
26 
23 
2 
25 
2 
0 
3 
2 
0 
7 
32 
58 ECU (000) 
0 
726 
329 
249 
1304 
80 
0 
236 
43 
279 
15 
0 
0 
15 
7678 
2618 
61 
2679 
65 
0 
248 
80 
0 
393 
3072 
4750 1995 
Number 
2 
2 
0 
0 
4 
1 
40 
0 
1 
41 
4 
2 
3 
9 
55 
16 
0 
16 
0 
0 
1 
0 
3 
4 
20 
75 ECU (000) 
646 
196 
0 
0 
842 
84 
4656 
0 
60 
4716 
57 
70 
75 
202 
5844 
2658 
0 
2658 
0 
0 
28 
0 
206 
234 
2892 
8736 Total 
Number 
4 
5 
6 
3 
18 
4 
40 
17 
2 
59 
5 
2 
3 
10 
91 
74 
2 
76 
9 
1 
9 
3 
3 
25 
101 
192 ECU (000) 
2028 
1122 
530 
648 
4328 
274 
4656 
236 
103 
4995 
72 
70 
75 
217 
9814 
8449 
61 
8510 
749 
23 
361 
91 
206 
1430 
9940 
19754 % 
10.3% 
5.7% 
2.7% 
3.3% 
21.9% 
1.4% 
23.6% 
1.2% 
0.5% 
25.3% 
0.4% 
0.4% 
0.4% 
1.1% 
49.7% 
42.8% 
0.3% 
43.1% 
3.8% 
0.1% 
1.8% 
0.5% 
1.0% 
7.2% 
50.3% 
100.0% 
ANNEX 2C 19 
No. of Commitments by 
Recipient Organisation 
Public Sector 
Management Committee 
National Statistical Organisation 
National Tourist Organisation 
Regional / Local Authority 
Sub total 
NGOs & Associations 
NGOs 
European Associations 
National Associations 
Sub total 
University / Research Institutes 
Private Sector 
Tourism Consultancy 
Major Management Consultancy 
Tour operator/Travel agent 
Non-tourism Company: 
Conference Organiser 
TV/Publications/Other media 
Technology/Consumer 
General consultancy 
Sub total 
Other 
Experts:Travel & meetings 
Mise 
Sub total 
Total all Recipients 1993 
Number 
2 
0 
0 
12 
14 
2 
9 
5 
16 
4 
8 
0 
1 
0 
6 
2 
6 
23 
0 
2 
2 
59 ECU (000) 
198 
0 
0 
893 
1091 
66 
445 
345 
856 
320 
1197 
0 
10 
0 
1675 
110 
987 
3979 
0 
22 
22 
6268 1994 
Number 
11 
0 
8 
2 
21 
2 
6 
3 
11 
5 
12 
2 
2 
0 
1 
1 
2 
20 
1 
0 
1 
58 ECU (000) 
195 
0 
208 
281 
684 
145 
470 
246 
861 
648 
1274 
726 
61 
0 
51 
161 
269 
2542 
15 
0 
15 
4750 1995 
Number 
5 
31 
4 
5 
45 
0 
2 
1 
3 
1 
8 
2 
1 
3 
3 
2 
2 
21 
4 
1 
5 
75 ECU (000) 
648 
3160 
209 
675 
4692 
0 
769 
189 
958 
153 
1647 
164 
91 
250 
545 
70 
102 
2869 
57 
7 
64 
8736 Total 
Number 
18 
31 
12 
19 
80 
4 
17 
9 
30 
10 
28 
4 
4 
3 
10 
5 
10 
64 
5 
3 
8 
192 ECU (000) 
1041 
3160 
417 
1849 
6467 
211 
1684 
780 
2675 
1121 
4118 
890 
162 
250 
2271 
341 
1358 
9390 
72 
29 
101 
19754 % 
5.3% 
16.0% 
2.1% 
9.4% 
32.7% 
1.1% 
8.5% 
3.9% 
13.5% 
5.7% 
20.8% 
4.5% 
0.8% 
1.3% 
11.5% 
1.7% 
6.9% 
47.5% 
0.4% 
0.1% 
0.5% 
100.0% 
EUROPEAN COMMISSION 
DIRECTORATE GENERAL XXIII 
Enterprise Policy, Distributive Trades, 
Tourism and Cooperatives 
EVALUATION OF THE COMMUNITY 
ACTION PLAN TO ASSIST TOURISM 
FINAL REPORT 
Prepared by Price Waterhouse 
February 1996 
Price Waterhouse 
le> 
DIRECTORATE GENERAL XXIII 
EVALUATION OF THE COMIVIUNITY ACTION PLAN TO ASSIST TOURISM 
CONTENTS Page 
SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS i 
SECTION 1-INTRODUCTION 1 
Circumstances of the Evaluation 
1.1- Background and Context 
1.2 - Aims and Objectives of the Evaluation 
1.3 - Scope of the Evaluation 
1.4 - Methodology 
1.5 - Definitions 
1.6 - Structure of the Report 
SECTION 2 - PROGRAMME MODEL OF THE PLAN 7 
2.1 - Introduction 
2.2 - Objectives 
2.3 - Policy Areas 
2.4 - Measures 
2.5 - Strategies and Instruments 
SECTION 3 - TECHNICAL EVALUATION OF ACTIONS 12 
3.1 - Methodology 
3.2 - Overall Scores 
3.3 - Case Studies 
3.4 - General Assessment 
SECTION 4 • ADMINISTRATIVE AND OPERATIONAL ASPECTS 25 
4.1 - Description of the Administrative and Management Arrangements 
4.2 - Assessment of Arrangements in Place 
4.3 - Recommendations 
SECTION 5 - ASSESSMENT BY CONTRACTORS 33 
5.1 - Methodology 
5.2 - Analysis 
5.3 - Lessons, Recommendations, Suggestions and Best Practice 
Final Report • V2.0 
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Appendices 
I Descriptive statistics of actions 
II Checklist for interviews of key informants 
III Evaluation Fiche for project assessment by PW experts 
IV Evaluation Fiche for project assessment by contractors 
V Checklist for case studies 
VI Council Decision of 13 July 1992 
VII List of contacts 
VIII Assessment by key informants 
Final Report -V2.0 
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EVALUATION OF THE ACTION PUN TO ASSIST TOURISM 
FINAL REPORT 
SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS # 
SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS 
1 This section presents a summary of the evaluation of the Community Action Plan to Assist Tourism 
(hereafter "the Plan") carried out by Price Waterhouse, and gives the key recommendations. This 
summary makes little reference to individual actions. 
Summary of Findings 
The Contents of the Programme 
2 In sum, the Tourism Action Plan looks like a patchwork of piecemeal initiatives, a fragmented, and 
sometimes incoherent and incomplete list of fragmented policies and activities. Most policies and 
measures contained in the Plan are probably defensible if considered individually, but it lacks an 
overall consistency. 
3 In Section 2 we present our analysis of the Plan, based on the links between actions and their 
objectives. We give below the main insights from this analysis. They are: 
(1 ) The 11 areas (we will call them "policy areas") identified in the Annex to the Council Decision of 1992 
do not constitute a coherent set of initiatives 
(2) There is confusion between ends (objectives) and means (measures such as studies and projects 
funded) 
(3) It is unclear how some actions would contribute to the stated policy objectives 
(4) . The policy " transnational measures", since it is not an end in itself, is very difficult to fit into a logical 
framework. This policy seems to duplicate other policies, and its aims are unclear 
(5) Some of the 11 policies combine areas which are quite distinct and would be better separated 
(6) Some of the policies seem to be phrased in a rather oblique and partial way, which leads to apparent 
incompleteness in the supporting measures (this partly reflects Community areas of competence and 
subsidiarity) 
(7) Some of the policies seem undersupported in terms of specific measures. 
4 The Plan also appears to be too ambitious given the human and financial resources available for the 
preparation and the implementation of the projects. 
5 The general lack of continuity between years is another drawback. 
6 The general findings of this analysis are corroborated by the main conclusions drawn from our 
interviews with key informants. 
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EVALUATION OF THE ACTION PUN TO ASSIST TOURISM 
FINAL REPORT 
SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS 41 
The Role and "Market Positioning" of the Tourism Unit 
7 The Unit does not seem to have a clear and operational vision on how to position itself vis-à-vis 
competing and complementary service providers such as National Tourism Offices (NTOs), regional 
and international organisations, and other Commission Directorates General. 
8 Linked to this "market positioning" issue is the issue of the definition of the role and mandate of the 
Unit. Options include: 
a a department co-ordinating EU initiatives in the tourism sector 
b a forum through which interested parties can debate and seek consensus 
c a regulatory department involved in managing aspects of the tourism sector, for example in 
respect of accommodation rating, fire safety, and package holidays 
d a monitoring department (watchdog) tracking and influencing events, for example in respect of 
statistics, identification of pressure points affecting the tourism sector (such as transportation, 
air traffic, staffing, seasonality) 
e acting in a "commercial" capacity for example in running external promotional campaigns, in 
cooperation with the private sector and NTOs 
f a body identifying, funding and promoting pilot schemes of potential European significance or 
value 
g a body providing technical assistance to other EU institutions (eg to the Directorates General 
dealing with the structural funds) and the sector generally. 
Compliance with Article 4 of the Action Plan and Achievement of Objectives 
9 As our analysis of the programme model of the Plan indicates (see Section 2), the objectives of the 
Plan are often defined at a very high level and are sometimes vague. In addition, these are medium 
and long term objectives. It would be rather unfair to assess the effectiveness of the Plan against 
these objectives. If such an assessment is to be made, the answer would certainly be: "no, the Plan 
has not yet achieved these objectives, if ever." However, Community Institutions should specify the 
timescales envisaged for an evaluation of such longer term objectives. 
10 The question must be rephrased: did the actions implemented under the Plan make a contribution 
towards the attainment of these strategic, long term objectives? In other words: did these actions 
(measures) achieve the associated intermediate objectives? Again, as demonstrated by the analysis 
of the programme model, such intermediate objectives are often missing or inadequately formulated 
to carry out such an assessment of effectiveness. 
11 A number of initiatives have made a positive contribution towards the attainment of certain intermediate 
objectives "set up" in the Plan (such as the provision of tourism statistics, and the co-ordination with 
the other EU policies and departments). 
12 It must be underlined, however, that the Tourism Unit has faced very difficult circumstances. In 
particular, most serious administrative disruptions were generated by charges of mismanagement 
Final Report - V2.0 
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EVALUATION OF THE ACTION PUN TO ASSIST TOURISM 
FINAL REPORT 
SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS • 
made against two senior members of the Tourism Unit staff. It must also be recognized that the nature 
of the Plan made the task of implementing and delivering it very difficult. 
Technical Evaluation 
13 Under these circumstances, it is easier (and more meaningful) to assess effectiveness at action (eg 
project and study) level than at a more general level. We carried out two main activities in this area: a 
technical assessment of all 1993-94 funded actions, and ten case studies of significant actions. 
Section 3 presents our findings of the technical evaluation of actions undertaken under the Plan. 
14 For 1993 and 1994 actions evaluated, individual scores from 1 to 5 were given, where a score of 5 
means very good. In 1993, the average scores were 2.9 for overall assessment and 2.7 for cost 
effectiveness. In 1994, both scores increased to 3.4 and 3.0 respectively. In other words, the overall 
quality of the projects improved considerably in 1994 (reflecting improved selection procedures) and 
the cost effectiveness also improved. The overall number judged good or very good increased from 
34% to 44%. 
15 The overall quality of the projects and studies carried out is poor to average (24% of the 1993 and 1994 
actions reviewed are assessed as very poor or poor) while only 14% of completed projects were 
judged to be very good. There has been, however, a significant improvement in 1994. 
16 In most instances, the impact of the action is limited in space, scope, and time. There were numerous 
financial commitments (a total of 59 in 1993, 58 in 1994 and 74 in 1995), in our view too many in 
relation to the Tourism Unifs resources to adequately define and monitor them. Most actions had a 
size too small to make a significant impact, although a number of successful small actions were very 
cost effective. The average size of the actions we evaluated was ECU 121144 in 1993, ECU 117030 in 
1994 and ECU 127015 in 1995. 
17 DG XXIII's achievements in the development of common tourism statistics has been very significant. 
Data collection is a necessary but expensive procedure in the tourism sector, and the approach 
adopted by DG XXIII was appropriate in the circumstances. The approach essentially focused on 
agreeing a common core minimum data set to be collected. Around this common core, related but 
optional data sets have been defined, again with commonality of definition, so that overall 
comparability is ensured. A Directive on collection of Statistics has recently been issued (23/11/1995 
and will come into force by the end 1996), and Governments are now receiving financial support under 
the Action Plan for bringing their respective systems into line with this. A total of 4.5 MECU has been 
committed to this task over a three year period (1995-1997). 
18 Most actions (projects and studies) funded can be classified into two groups. On the one hand, there 
are actions fulfilling political objectives; these actions promote "European" concepts and networks, and 
are of a fairly high profile and newsworthy; on the other hand, there are commercially interesting 
actions, with sustainability built in. These two groups can occasionally coincide. 
19 The promotion of "transnational networks" is, in our view, not an objective, but a means to achieve an 
objective. There is an obligation, under Article 4 of the Council Decision, for cost effective measures. 
Political objectives eg of promoting transnational networks, may be achieved better and more cost 
effectively through other means and do not need the cover or justification of a pilot project which is 
only occasionally really innovative. 
Final Report • V2.0 
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20 A number of studies were funded to look at major issues of importance to the tourism sector. These 
were generally well executed, even if the choice of topics (youth tourism, business and conference, 
yield management, for example) did not appear to be based on a careful analysis of needs taking into 
account existing available data. We are aware that the topics relating to studies were proposed and/or 
agreed by the Management Committee. We take the view that more time must be used to define 
precisely the studies to be funded, taking into account existing studies, ongoing research 
programmes, and the travel industry needs. 
21 A number of projects and studies had as their objective the preparation of reference lists, handbooks 
and guides of potential interest to the sector. All of these suffered from a lack of in-built post project 
sustainability, which are essential when data need frequent (and often expensive) updating. 
22 The Plan made a number of strong contributions for tourists with disabilities. Guides to make Europe 
accessible to the disabled tourists are examples of excellent and cost effective studies emerging from 
the Plan. 
23 Most of the cultural components of the Plan focused on building-up transnational routes and networks 
based on a range of themes. Most of these were relatively low cost exercises, which produced 
interesting results. At the same time, the sustainability and impact on tourism demand are likely to be 
limited, and the main longer term benefits may arise from the strengthening of linkages between 
regions. If there is no intention to secure a sustained economic benefit, then this must be made clear 
and the actions must be judged on that basis. But the need to be cost-effective remains. 
24 It is also noted that the concept of routes and trails of linked destinations was already well established 
before the Plan, and the marginal value of creating further routes/trails may be limited, and should thus 
be assessed. The innovative aspect of the DG XXIIPs funded trails is their transnational design. The 
longer impact is still unknown and needs research. 
25 The scope of the education and training projects has been quite wide, including development 
networks, curriculum definition, and identification of new professional needs. Those networking 
projects which seem the most successful have been the ones reinforcing existing networks, while the 
creation of new networks is judged in general less successful on sustainability and other grounds. 
26 Where projects have focused on curriculum needs with European commonality they have served very 
useful roles. Less successful in contrast have been a number of projects which have focused on the 
identification of new professional categories. 
27 They have also been a number of one-off training exercises (eg in Eastern and Central Europe) which 
although in themselves useful, do not fit within an institutional or other framework providing a basis for 
follow up and sustainability. Though rather in isolation they may have been effective, although they did 
not fit into a coherent plan and are best avoided in the future unless mechanisms to ensure 
sustainability are put into place. 
28 The technology pilot projects supported under the Plan are broadly either generic, addressing key 
issues such as data definition procedures for information exchange; or specific in seeking to apply 
new technology to specific situations. 
29 This distinction generic/specific broadly coincides with project responsibilities with DG XXIII, where the 
essentially generic projects (such as CIRT, EDITIN, ET1, TIRS, all good projects) are considered as 
"technology" projects and classified under the policy area Transnational measures". A number of 
Final Report • V2.0 
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EVALUATION OF THE ACTION PUN TO ASSIST TOURISM 
FINAL REPORT 
SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS 4» 
projects in the cultural area are dominated by technology solutions and from these specific important 
conclusions relating to their technology can be drawn. 
30 In contrast to the cultural activities funded, there are indications that one way or another, many of the 
"generic" technology projects funded would have in due course proceeded without EC funding, since 
they addressed issues of industry significance, such as globalisation of data or access advances. The 
EC funding, while contributing very usefully to addressing these issues, could be described as 
supportive. It has however had a positive impact in accelerating the application of new technology to 
tourism-specific tasks (for example, the 1993 project EDITIN). 
31 The specific projects have not been particularly successful because there is a strong likelihood that 
most will wither following completion of project funding because they lack any in-built sustainability or 
commercialisation component. These projects appear to have been largely designed to "access" EC 
funds, rather than to address specific needs. 
32 Running through many of the new technology oriented database projects is apparently a failure to 
address post project sustainabilty. Tourism databases need constantly updating and administrative 
and financial mechanisms for achieving this are as important a component of project design as the 
technical components. These follow up and commercialisation issues were in the majority of cases 
not satisfactorily addressed, with as a result a number of interesting projects completed, but having 
most probably no lasting contribution to make to the tourism sector. 
33 One issue that was not specifically addressed in the design of the technology and other projects was 
the question of relevance to SMEs. Technology offers both a barrier and an opportunity to SMEs, and 
this issue has not been satisfactorily addressed. Some projects omit any link to suppliers at all, 
concentrating on tour operators and travel agents, and omitting hotels. The Internet, with its low cost 
of entry, represents, it can be argued, a major area of potential for SMEs, yet there has not been any 
project, so far, addressing this area. 
Administrative and Operational Aspects 
34 In Section 4, we give an overview of administrative and management arrangements and procedures, 
followed by our assessment. Our main findings are summarised below. 
35 Administrative arrangements and procedures were weak at the beginning of the implementation 
period, but have been significantly improved in 1994 and 1995. 
36 Members of the staff we have seen are clearly committed and hard-working. Staff members are 
overloaded with administrative tasks, the rationale and effectiveness of which are not always evident. 
The balance between direct applied (project preparation, site visits, contacts with contractors etc) and 
administrative tasks is unfavourable. 
37 Communication lines at DG XXIII are lengthy, procedural and slow, and so is the decision-making 
process. Procedures have however progressively improved on matters related to the Plan. 
38 We also identified the following shortcomings in the area of staffing: high turnover; low percentage of 
"tourism experts" and generally inadequate presence of tourism skills; understaffing of the financial 
administration; inadequate training (eg in area of financial and project management). 
39 Given the limited staff resources available at the Unit in 1993-95, it was ill-advised to implement the 
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Plan through the funding of such a large number of projects and studies (mainly through open calls for 
proposals) because of the heavy administrative burden implied by such an approach. 
40 Hence, the quality of a number of selected proposals was poor, without clear objectives, without a 
strong project team, or with a very limited innovative aspect. The projects selected in 1994 showed an 
improvement and the result of the 1995 calls for tenders and for proposals display a significant 
improvement in quality, and expectations of good results are running high. 
41 Financial management was poor during the first half of the implementation but has since been 
improved. It still needs to be strengthened. Poor performance in the area of financial management 
was due to the conduct by senior members of the staff (who were removed from the Unit in the first 
half of 1994), and also due to inadequate systems (such as poor use of information technology), 
inadequate staff training, and insufficient staffing at administrative level (ie grade B). 
Key Recommendations 
42 We now give our main recommendations to the Tourism Unit and DG XXIII. These recommendations 
are amplified in the relevant sections of the document. 
Strategic Aspects 
J 
43 We think that the Unit should limit the scope of its activities by concentrating its resources in a few 
strategic areas in order to become more effective. The Unit should seek to achieve a clearly spelled 
out vision on its "market positioning", mission and objectives, and should select its means of action 
accordingly. 
44 The Unit must take action in order to regain credibility and increase the "tourism" profile of the Unit 
(current staff are often perceived by our interviewees as not having sufficient expertise in the area). 
Operational Aspects 
45 Partnership and co-operation with the various stakeholders (private and public, including Member 
States, National Tourism Offices and other industry interests) should be improved. 
46 The three (Management, Consultative and Advisory) Committees could become the main vehicle for 
dissemination of the results of the activities funded or undertaken by the Unit. These committees must 
accept that they have a large part to play in dissemination and undertake this responsibility. 
47 Committees in place could also be used to help the Unit in the identification of needs (eg possible pilot 
projects) and to ascertain that EU funding will not duplicate existing initiatives. Independent experts 
could fulfill a similar role. 
48 In the area of staffing, corrective actions should be considered: to reduce staff turnover; to improve the 
in-house technical tourism expertise, eg through secondments from NTOs; to provide more training to 
the staff (at all grade levels), perhaps through secondment to the sector, eg in management, financial 
and administrative aspects of Community procedures. 
49 The information systems in place should be reviewed and significantly improved, eg to generate more 
management information to support staff members. 
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50 The Unit and the hierarchy should consider a review of its administrative arrangements and select 
performance indicators as far as possible (with associated targets) in a number of areas, allowing for 
limitations imposed by the Commission administrative rules. 
51 The Unit should review internal procedures to free up time to prepare, monitor, and follow up the 
actions funded. The staff is devoting a disproportionate amount of time to essentially non productive 
paperwork. 
52 There is a need to strengthen the monitoring and evaluation of projects, and, more generally, to design 
and implement simple but efficient procedures, designed at the outset and not retrofitted. Also, more 
site visits should take place on a regular basis. This is an aspect which already improved in 1994-95. 
53 Actions should also be considered to ensure that an adequate dissemination/distribution of project 
results takes place, for example, by earmarking resources in the project budget at the 
preparation/selection stage. These aspects were better considered in the 1995 call for proposals. 
54 The number of projects and studies funded should be significantly reduced in order to increase their 
impact and to limit administration. 
55 The use of the "call for proposals" procedure should be reviewed to reduce the administrative load 
and to maximise the effectiveness of the procedure. The possibility of contracting out some of the 
work must be considered. 
56 The proportion of meetings organised around a theme or a technical issue should be increased. 
57 The Unit should be given more autonomy in a number of strictly operational areas such as the 
management of the budget for missions. The Unit should be able to respond quickly and flexibly to 
the needs of project implementation (site visits, participation to workshops etc), within the strict limits 
of an agreed budget. This should of course not make the Unit less accountable or transparent. 
58 The annual cycle of the Plan had a negative impact on the quality of the actions selected and on the 
their implementation. A longer project timespan is required (eg three years). 
59 In the short term (ie 1996), we feel that initiatives should focus on: 
a dissemination of the best outputs generated by the actions funded (eg publication and 
distribution of completed reports) 
b follow-up to successful projects and studies to draw lessons, and transfer best practice 
c development of relationships with the tourism industry and other stakeholders 
d continuation of activities in the area of co-ordination with other Directorates General and to 
develop Community tourism statistics. 
Guidelines for a Future Tourism Programme 
60 A future tourism programme should: 
a be more focused (fewer priorities, fewer funded actions, larger average project value) 
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b increase internal consistency of the programme 
c include actions of a multiannual character 
d have well prepared and specified terms of reference based on a logical framework taking into 
account measurable indicators of success, post project ownership, responsibility and 
sustainability issues 
e improve the procedures of preparation and planning, monitoring and evaluation of projects 
(both internal and external, ie independent) 
f give a high priority to the dissemination of the results and the follow-up of the actions 
g ensure that the most successful sustainable actions carried out in 1993-95 are continued, and 
reinforce the areas of success. 
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SECTION 1 - INTRODUCTION 
SECTION 1 - INTRODUCTION 
Circumstances of the Evaluation 
Price Waterhouse is aware of certain allegations regarding the conduct of affairs in the Tourism Unit in 
the period prior to March 1994. Directorate-General XXIII gave Price Waterhouse the following briefing 
on the matter: 
"The Director-General of DG XXIII became aware during 1993 of these allegations. He immediately 
launched in-depth internal inquiries within the Directorate-General into the allegations. As soon as he 
became convinced that there was at least some truth in these allegations other services were involved. 
As a result of these various inquiries two members of the Tourism Unit were suspended and later 
dismissed from the services of the Commission. The Commission informed the civil authorities in a 
number of Member States of the information which had come to hand and invited them to carry out 
their own inquiries." 
In view of all these inquiries, some of which are still underway, Price Waterhouse were not called upon 
to investigate the allegations. They were, however, asked to bear in mind the effect which the 
allegations and inquiries they entailed had on the overall effectiveness of the plan. 
In the light of this, Price Waterhouse have only commented in their/evaluation on circumstances 
affected by these events. In particular it should be noted that in addition to the inquiry conducted by 
DG XXIII itself the other inquiries involved the staff of the Unit in tracing and supplying information. 
This deprived them of considerable amounts of time which would normally have been devoted to other 
duties. 
A further consequence of the allegations and inquiries is that the budgetary and financial authorities of 
the Community Institutions became, quite naturally, very strict and precise in relation to the application 
of rules to activities of the Tourism Unit. This led to considerable delay in processing matters some of 
which would normally have been regarded as routine. This was most frustrating for the Tourism Unit, 
again costing time normally devoted to direct implementation of the Plan and delaying that 
implementation. 
1.1 - Background and Context 
The Community Action Plan to Assist Tourism (the Plan) began in January 1993 further to Council 
Decision 92/421/EEC of 13 July 1992. The Plan lasted three years finishing at the end of December 
1995. Article 6 of the Plan stipulated that an evaluation would be undertaken. 
The Annex to the Action Plan gives 11 specific groups of measures relating to tourism. Article 4 of the 
Plan states that actions taken must: 
a be consistent with the principle of subsidiarity 
b be cost-effective and make a significant impact on the Community tourism industry 
c facilitate the development of the industry with particular reference to small and medium sized 
businesses 
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d encourage competition within the Community and increase the competitiveness of Community 
tourist services on the world market 
e be conducive to preserving and protecting the quality of the natural environment, the cultural 
heritage and the integrity of local populations 
f be conducive to improving the provision of information and services to the protection of tourists 
g help improve the quality of Community tourist services 
h be implemented through coordination with the national authorities and, if necessary, with the 
regional or local authorities as well, so as to take account of the importance of tourism for 
regional development. 
1.2 - Aims and Objectives of the Evaluation 
7 The principal aim of this study is to undertake an evaluation of the Plan. The evaluation includes a 
technical evaluation of pilot projects, studies and other initiatives of work undertaken in 1993 and 
1994, and an assessment of the (as yet) uncompleted work selected under the 1995 programme. 
8 The basis for the evaluation is the general criteria stated above and the specific criteria stated in the 
Annex to the Action Plan and in subsequent calls for tenders and proposals. In the case of ad-hoc 
projects the evaluation considered the application as submitted. The evaluation focuses on all the 
measures within the Action Plan and considers quantitative and qualitative aspects. 
1.3 - Scope of the Evaluation 
9 Actions taken under the Plan consist of a range of horizontal and specific initiatives. These include: 
a a co-ordination task within the Commission concerning other policies with an impact on tourism 
b transnational pilot projects jointly funded by the Commission and other partners 
c research studies on specific aspects of the tourism industry 
d conferences and networks related to specific aspects of the tourism industry 
e reports and consultative documents on tourism policy and practice for Community institutions 
and the industry. 
10 Appendix I contains the list of all the projects and studies supported. 
11 In addition to the evaluation of these specific actions we were required to evaluate the priorities given 
to the various different measures under the Plan, and the administrative aspects relating to the Plan 
and the extent and allocation of resources. 
1.4-Methodology 
12 In this section we describe the programme of work we carried out and the main activities completed. 
We also present the ten "case studies" selected. 
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Programme of Work 
13 The programme of work was as follows: 
Phase 1 - Overview of the Plan. Programme of (face-to-face and telephone) interviews with 
officials of DG XXIII and of other DGs, members of the Management Committee, members of 
the industry, independent experts. In total we carried out over 60 interviews (of which 53 were 
outside DG XXIII). 
• Phases 2 and 3 - Analysis of projects. We carried out a technical evaluation of all projects 
completed in 1993 and 1994 (Phase 2), and of the proposals of the projects selected in 1995 
(Phase 3). Most 1993 and 1994 contractors received a questionnaire covering the following 
aspects: project description, achievement of objectives, project implementation. 
• Phase 4 - Analysis, conclusions and recommendations. 
Activities Completed 
14 The assignment started on 10 November 1995 (launch meeting at DG XXIII). Our final report was 
accepted by DG XXIII on 26 February 1996. Price Waterhouse was assisted by Mr Esmond Devas, 
tourism expert. j 
15 In November and December 1995 we carried out a first round of interviews and meetings with DG XXIII 
officials. About ten interviews were completed by the end of December. The main objectives of this 
first round of interviews were to establish contact with the Tourism Unit staff, and to gain an overview of 
the activities and to collect views on the (past, current, present) role of the Tourism Unit. 
16 We then contacted 69 key independent informants and experts (external to DG XXIII), and carried out 
53 face-to-face or telephone interviews. The key issues discussed were (see Appendix II for 
checklist): 
a Exposure to the Tourism Action Plan 
b Interface with Tourism Action Plan (co-ordination, complementarity, overlap etc) 
c Assessment of the rationale of Tourism Action Plan: does the programme makes sense? 
d Assessment of impact and effects: what has happened as a result of the programme? 
e Achievement of programme objectives: has the programme achieved what was expected? 
f Alternatives: are there better ways of achieving the results/objectives? 
g Lessons, recommendations, suggestions, best practice. 
17 All the members of the Management Committee and all the members of the Consultative Committee 
received a letter from PW explaining the objectives of the assignment and encouraging them to 
contact us if they wanted to contribute. We received written responses from Germany, Greece and 
Portugal. We interviewed the representatives of Italy, Ireland, Spain, France, Finland, Belgium and 
Luxembourg. 
18 We set up a project database containing descriptive and financial information for all the 1993-95 
actions (see Appendix I). 
19 77 contractors for the 1993 and 1994 projects received a short questionnaire covering project 
description, achievement of objectives, implementation, and assessment of the implementation. The 
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proforma used is given in Appendix IV. We received 47 responses which represents a response rate 
of 61%. We treated the findings from this survey with caution because of the possible bias expressed 
in the responses. 
20 We carried out a technical evaluation of all completed actions (1993 and 1994 contracts, 90 in total). 
To carry out this assessment, we prepared an Evaluation Fiche for project assessment (see Appendix 
III). Our approach to project evaluation was, as far as feasible, to proceed in five steps, as follows: 
a group the projects for review according to the official(s) in charge 
b set up a first discussion with the official(s) who made a brief introduction to the projects 
c complete the Evaluation Fiches 
d discuss the fiches with the EC official (s) 
e finalise the fiche and enter the score in the database. 
21 We carried out ten case studies (see Table 1.1). We used the following criteria to make our selection, 
which was agreed with DG XXIII: 
a need to cover all three years in so far as possible 
b need to select, for each year, the projects with most significant budgets 
c need to be representative of the annual priorities 
d need for balance between successes and failures. 
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Table 1.1 -Case Studies 
Contractor 
1. L&R Leisure 
2. HTL 
3. Delvico/Bates 
4. Regione Toscana 
5. Hjoerring 
Business College 
6. FECTO/FOTVE 
7. Arthur Andersen 
8. National Institutes 
of Stat. & Others 
9. WTTC 
10. -Title 
European Project for the Training of 
Operators in Tourism in Bulgaria and 
Slovakia 
Tourism & Environment Prize 
Tourism Promotion of Europe as a 
Destination for Tourists in Long 
Distance Source Markets 
ETI - European Tourism Information & 
Booking 
Development of a Training Strategy for 
Employees and Trainers within the 
Tourism Sector in the Cold Water 
Regions around the North Sea 
The "Art Cities in Europe" Programme 
Yield Management in Small and 
Medium Sized Enterprises in the 
Tourism Industry 
Theme: Development of Community 
Tourism Statistics 
Theme: analysis of procedures through 
analysis of 1995 Environment projects, 
in particular the project European 
Community Network for Environmental 
Travel and Tourism 
Theme: Coordination by Tourism Unit Year 
1993 
1993 
1993 
1993 
1994 
1994 
1994 
On 
going 
1995 
On­
going Funding 
('000 Ecus) 
220 
381 
1000 
200 
195 
195 
392 
4500 
(1995-97) 
631 
-Domain 
Training Central & 
Eastern Europe 
Environment 
Promotion 
New Technologies 
Training 
Culture 
Study 
Statistics 
Analysis of 
tendering, 
assessment and 
implementation 
procedures 
Horizontal activity 
22 We also reviewed the administrative aspects of the Plan, in particular selection and monitoring 
procedures and management arrangements. 
1.5-Definitions 
23 The Plan consists of 11 groups of Community measures to assist tourism (see Appendix VI). We call 
these "policy areas', and reserve the term "measure" for the actions taken to implement the Plan. 
24 We distinguish between three types of actions: 
a studies (100% funded actions) 
b projects (jointly-funded normally up to a maximum of 60%) 
c other activities such as the co-ordination within the Commission. 
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1.6 - Structure of the Report 
25 The rest of the report is structured into five main sections. Section 2 presents our analysis of the Plan, 
based on the links between actions and their objectives. Section 3 summarises the findings of the 
technical evaluation of actions (studies, projects and other activities) undertaken under the Plan. In 
Section 4 we give an overview of administrative and management arrangements and procedures, 
followed by our assessment. Section 5 gives the findings of the postal survey we carried out for the 
1993 and 1994 projects and studies. 
26 Appendix VIII contains a summary of the assessment by the key informants we talked to (we provide a 
list of contacts in Appendix VII). It should be noted that these are not necessarily the views of Price 
Waterhouse. 
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SECTION 2 - PROGRAMME MODEL OF THE PLAN • 
SECTION 2 - PROGRAMME MODEL OF THE PLAN 
2.1 - Introduction 
27 A structured approach is required to analyse policy objectives and their outcomes in a systematic way. 
We began our evaluation process with the preparation of a "profile" of the Plan's policy and its 
component parts. This section gives our analysis of the Plan, based on the notion of a programme 
model - a schematic representation of the links between measures (or actions) and their objectives (ie 
a "hierarchy of objectives"). A programme model is an important tool not only for monitoring and 
evaluation purposes but also for strategy planning and policy-making. 
28 We used a simple four-level structure of objectives, which could be refined and further sub-divided. 
These levels are: 
a the immediate objectives which relate to particular actions (measures) and which must be 
expressed in quantitative terms as far as possible. 
b the intermediate objectives are more detailed and specific. They generally represent a "cause-
and-effect" assumption. 
c the ultimate objectives (also called final or strategic objectives) of a policy are broad, long term 
objectives, eg "to promote economic growth and employment". 
29 Table 2.1 gives an example of a four-level hierarchy of objectives. 
Table 2.1 - Example of Hierarchy of Objectives 
Measures 
- campaign sustained 
over three years 
- improve use of existing 
infrastructures 
- support cultural 
itineraries 
- training (eg languages) 
-etc. Immediate Objectives 
- to promote Europe as a 
destination 
- to improve 
communication links (eg 
links with Japan) 
- to launch new products 
targeting US and 
Japanese markets 
- to improve level of 
services 
-etc. Intermediate Objectives 
to increase the 
competitiveness of the 
European tourism 
industry Ultimate Objectives 
to generate employment 
and growth in the 
European tourism 
industry 
30 The Plan appears to have been built from the bottom up ie starting with individual measures trying to 
aggregate these into broad policy areas and only implicitly linking these to the ultimate objectives. 
31 The approach taken here, as a test of the coherence and completeness of the programme, was to 
analyse the programme top down, and to ask at each level in the hierarchy of objectives: 
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(1) are the items at each level consistent with each other? (horizontal consistency) 
(2) do the items at the next level down in the hierarchy contribute to the items at this level? (vertical 
consistency) 
(3) are the items at the next level down the most effective ones to enable us to achieve our objectives, or 
are there other possibly more effective options? (completeness) 
32 This section does not explicitly consider consistency with other Community objectives. DG XXIII needs 
to spell out these linkages because: 
a other policies contribute to the objective of fostering tourism 
b tourism policy can contribute to the objectives of policy in other domains 
c and policy in other domains can act as a constraint on tourism policy. 
2.2 - Objectives 
33 Figure 2.1 shows a logical model setting out the links between the measures, intermediate objectives 
and ultimate objectives (immediate objectives have been left out for the sake of clarity) implicit in the 
Plan and the 11 policy areas (groups of measures). 
I 
34 The ultimate objectives of Community tourism policy seem to be: 
a to promote economic growth and employment 
b to promote economic and social cohesion 
c to promote "European citizenship". 
35 But the programme can only be understood in terms of other objectives, explicit in the documentation 
but relating to other policy areas, notably to protect and promote the natural and cultural heritage and 
to protect the consumers' interests. 
36 There may be tensions between these two sets of high level objectives (eg between promoting growth 
and protecting the environment). 
37 It is not clear how some of the 11 "policies areas" identified in the Annex to the Council Decision 
contribute to these high level objectives, implying that there are other implicit but unstated aims: eg 
social tourism (8); viewed solely as an instrument for achieving the higher level objectives this must 
rank as a very low priority, although it might be important in support of some other (unstated) social 
aims. 
38 The objectives of promoting competition and of helping SMEs, stated in the Council decision, do not 
seem to be clearly supported by specific measures or policies. 
39 Other policies only make sense if intermediate objectives are added eg "to improve knowledge of the 
tourist industry" requires an intermediate objective such as "To improve the quality of decision making 
at Community, Member State, local and private level" (see Figure 2.1). 
40 The policy area " Transnational Measures" designed to promote transnational tourist development 
initiatives, since it is not an objective but a mechanism, is very difficult to fit into such a logical 
framework. 
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It 
Measures 
To ensure that the 
environment is more fully 
taken into account in the 
development of tourism 
To highlight the importance of 
the cultural heritage for 
tourism and to promote a 
greater knowledge of the 
culture, traditions and ways of 
life of Europeans 
To make Europe a more 
attractive destination for 
tourists from distant countries 
To promote a better seasonal 
distribution of tourism 
To provide support 
for increased 
professionalism 
To develop tourist activities 
in a rural environment 
To facilitate access to 
tourism by groups who have 
difficulty in taking holidays 
To promote 
youth tourism 
To help tourists as 
consumers 
To improve knowledge of 
the tourist industry 
To promote 
transnational initiatives Figure 2.1 - Programme Model of the Plan 
Intermediate objectives Ultimate objectives 
To protect and promote 
the natural and cultural 
heritage 
? Tension 
To promote the 
diversification of 
tourist activity 
To improve the quality and 
competitiveness of the 
Community's tourism 
services on offer To generate income 
and employment 
To promote the 
development of the 
tourist industry 
To contribute to 
economic and soda! 
cohesion 
To expand the demand 
for the Community's 
tourism services 
To allow people of all kinds to 
gain a better knowledge of 
Europe's cultural roots and of 
the cultures and ways of life in 
the Member States To foster "European 
Citizenship" 
To protect consumers 
\ \ 
-© 
©-To improve the quality of 
decision making at 
Community, Member State, 
local and private level 
To ensure greater 
consistency of 
Community measures Indirect impact -
feedback via other 
measures 
To preserve free 
competition To promote small 
and medium sized 
enterprises 
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2.3 - Policy Areas 
41 The word " policy area" is used here to refer to the 11 groups of measures identified in the Annex to the 
Council decision of 1992. 
42 There is a confusion between ends and means; the 11 policy areas are a mixture of instrumental 
objectives or ends eg " [to promote] staggering of holidays" (2), and types of measure or means eg 
"transnational measures", " promotion in third countries". 
43 Some of the 11 policy areas combine two areas which are quite distinct and would be better 
separated, for example: 
(1 ) "Improving knowledge of the tourism industry" and "ensuring greater consistency of Community 
measures " (1); whilst both of these are important in their own right, neither will necessarily lead to the 
other, nor do the measures contributing to the attainment of one necessarily contribute to the 
attainment of the others 
(2) The policy "transnational measures" seems to duplicate other policies, and its aims are unclear. It is a 
tactic, not a policy objective. 
44 There is a degree of confusion between certain policy areas. For example the "support for the 
exchange of experience in the field of visitor management techniques", included in the policy "cultural 
tourism" (5.b) should come under the policy "tourism and the environment" (6). 
45 Some of the policies seem to be phrased in a rather oblique and partial way, which leads to apparent 
incompleteness in the supporting measures (this may reflect Community areas of competence and 
subsidiarity) eg 
(1 ) "to highlight the importance of the cultural heritage for tourism and to promote a greater knowledge of 
the cultures, traditions and ways of life in Europeans" (5); this is expressed in terms of awareness 
rather than substance (a substantive policy would be eg to safeguard the cultural heritage in the 
interests of tourism1), and accordingly substantive measures such as actions to protect ancient 
monuments are omitted. 
(2) This contrasts with policy 6 (Tourism and the environment) where a much more direct approach is 
taken to environmental protection, leading to a more coherent set of measures. 
2.4 - Measures 
46 The measures (studies, projects and other actions) identified in the Annex to the Council Decision of 
1992 in the main bear a logical relationship to the 11 policy areas. However, there are exceptions as 
detailed below. 
47 It is unclear how some measures would contribute to the stated policy objectives eg "development of 
tourist cooperation with central and Eastern Europe and the Maghreb" (3 c): how does this promote 
tourism in the Community? 
48 Some of the measures are confused, eg 
(1 ) "[to promote the interests of] tourists as consumers" (4): is a policy, to be implemented by measures to 
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improve information and protection: " in areas such as existing classification systems, signposting 
symbols, time share arrangements, over-booking and procedures for redress". It is unclear whether it 
is intended merely to inform tourists of their rights, or to strengthen those rights. These are quite 
distinct and should be distinguished. 
(2) " consultation of (sic) tourism professionals within the Community" (1 .a); consultation about what and 
with what purpose? Why should it be done independently of either the development of statistics (1 .a) 
or studies and strategies (1 .b)? 
(3) the policy objective "to make Europe a more attractive destination for tourists from distant countries" 
(policy area 11) implies action to change the tourism product itself. Yet the proposed measures appear 
to be confined to promotion ie increasing awareness of the product in third countries. If the aim is in 
fact "to increase the number of visitors from third countries" then there would be a much wider range of 
possible measures as shown in Figure 2.2 which is an example of how one area of policy might be 
analysed; the measures are purely illustrative. ' 
Figure 2.2: Example of Low Level Logical Framework (Hierarchy of Objectives) for Policy Area 11 
Measure Immediate 
objectives Intermediate 
objective 
49 Some of the policies seem undersupported in terms of specific measures - ie the measures do not 
form a sufficiently complete set to be likely to contribute significantly to the achievement of the policy 
eg 
(1 ) "ensuring greater consistency of Community measures" (part of policy 1 ) appears to be supported only 
by the measure "preparation of strategies adapted to keep pace with demand" (other measures under 
this heading being in support of the other aspect of policy 1); this seems very weak for what surely 
should be a central aim 
(2) "youth tourism"; the two measures indicated are far more specific than those in other policy areas; they 
may be very effective but are there not other possible measures? 
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2.5 - Strategies and Instruments 
50 It would be possible to group the actions in terms of the underlying strategies: 
a implementation of specific measures, complementary to those taken at national level 
b coordination of measures undertaken by Commission departments which affect tourism, and 
ensuring better integration of tourism with the various Community policies 
c promoting the development of transnational measures 
d ensuring close cooperation between all public and private bodies in the sector. 
51 Similarly, two main types of instruments - a policy instrument is a mechanism chosen to achieve an 
objective - are used: legislation and financial support. In further plans, the Commission should 
undertake an analysis of the completeness of the programme for each of the policy areas, and an 
assessment of the appropriate strategies. 
52 More generally, the Commission should prepare a programme model of the actions to assist tourism, 
focusing on a reduced number of policy areas and linking in a systematic way the elements of the 
model, ie instruments, measures, immediate objectives, intermediate objectives and ultimate 
objectives. 
53 Output and performance measures or indicators, and targets (ie quantified objective to be attained at a 
specified future date) should then be set. These should be intrinsic to the whole process of 
management, including planning, monitoring, evaluation, and public accountability. Examples of 
indicators are: percentage increase in the number of visitors from third countries; number of pilot 
projects leading to commercially viable transnational products; evolution of the EU market share in 
world tourism. 
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SECTION 3 - TECHNICAL EVALUATION OF ACTIONS 
3.1 - Methodology 
54 Whenever possible, our approach was in five steps, as follows: 
a we grouped the files for review according to the EC official(s) in charge, 
b the officials gave a brief introduction to the actions, 
c the consultants assessed the actions against agreed criteria, 
d discussed his/her evaluation with the relevant EC official(s) 
e and then finalised the fiches. 
55 In total, we reviewed 90 files, 53 1993 actions and 37 1994 actions. We also reviewed the studies and 
projects selected in 1995, but since these actions are just starting, our review was limited to the terms 
of reference and the contractors' proposals. 
56 We also carried out ten case studies, of which three were "thematic" case studies. 
57 All actions have been reviewed. However, an assessment for each policy area specifed in the Plan 
was not practical because a number of groups of measures (Staggering holidays, Tourists as 
consumers, Rural tourism and Youth tourism) include only a very small number of actions. These four 
groups represented only 3.2% of the total spend under the Plan. In this report, we focus on the other 
policy areas but make reference to specific actions included in these groups of measures where 
appropriate. 
3.2 - Overall Scores 
58 Tables 3.1 to 3.3 give a summary of the main results for the projects and studies funded in 1993 and 
1994. In order to avoid any misinterpretation of these findings, it is important to emphasize that the 
overall score attributed for each action is based on a large number of criteria (see Appendix III). In 
particular, both the rationale of the project (ie does the project make sense?) and its effectiveness 
(achievement of planned objectives) are taken into account. Therefore, this score is OQÎ solely a 
judgment on the contractor. 
59 A score of 5 means "very good". A score of 3 means "average", and less "poor" or "very poor". We 
classified a satisfactory action - which, using an examination metaphor, would be a pass but without 
honours - as "average" (score of 3). "Average" is therefore not to be confused with an arithmetical 
mean. In that sense, one should ideally expect most actions to achieve a score above 3. 
60 This technical assessment, although expressed for convenience in quantitative terms, is a subjective 
one. Criteria against which actions are judged are mixed and the actions themselves have been 
concluded recently, so that their longer term impact is uncertain. It must be noted that we consider 
that the criteria used are not additional to the ones specified in Article 4 of the Council Decision, but 
that they are integral part of the Plan as a whole and implied (on any rational assessment) in most of 
the projects themselves. For example, how can any project involving database creation be cost 
effective (Article 4) if there is no built in mechanism to update information which by definition will be 
quickly out of date? 
61 In 1993, the average scores were 2.9 for overall assessment and 2.7 for cost effectiveness. In 1994, 
both scores increased to 3.4 and 3.0 respectively. In other words, the overall quality of the projects 
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improved considerably in 1994 (reflecting improved selection procedures) and the cost effectiveness 
also improved. The overall number judged good or very good increased from 34% to 44%. 
Table 3.1 - Overall Technical Assessment of 1 £ 
1993 
(53 actions reviewed) 
1994 
(37 actions reviewed) Poor or very 
poor 
36% 
8% 93 and 1994 Ac 
Average 
25% 
46% tions. Breakdown by Year (% of 
Good 
19% 
30% Very good 
15% 
14% total) 
Not relevant 
or not 
possible* 
5% 
2% 
* In a small number of cases, we consider that it was not possible to give a credible/robust assessment given the available 
information. 
62 In Section 3.4 we discuss the main factors explaining the variations displayed in Table 3.1. Table 3.2 
gives a breakdown by policy area. It shows that the group measures "Improving knowledge of the 
tourist industry" has performed, on average, better than the other groups of measures. In 1994, the 
actions undertaken in the field of cultural tourism have, on average, been of good quality. 
63 Table 3.2 - Overall Technical Assessment of 1993 and 1994 Actions. Breakdown by Type of Action 
1993 
Overall Assessment 
Cost Effectiveness 
Number of actions 
1994 
Overall Assessment 
Cost Effectiveness 
Number of actions Group 1** 
3.3 
3.3 
9 
Group 1 
3.8 
3.0 
6 Groups 2 
and 4 
No action 
funded 
Groups 2 
and 4 
3.0 
2.0 
3 Group 3 
2.9 
2.6 
17 
Group 3 
Only two 
actions Group 5 
2.8 
2.6 
18 
Group 5 
3.5 
3.3 
12 Groups 
6 to 11 
2.7 
2.6 
9 
Groups 
6,9 and 
11 
4.3 
4.5 
4 Group 10 
Only two 
actions, 
included 
in groups 
6 to 11 
Group 10 
2.7 
2.2 
10 * 
All Actions 
2.9 
2.7 
53 
All Actions 
3.4 
3.0 
37 
* We do not report scores on groups of measures with less than three actions. 
** i=lmproving knowledge; 2=Staggering holidays; 3=Transnational; 4=Tourists as consumers; 5*Cultural tourism; 
6=Tourism and environment; 7= Rural tourism; 8=Social tourism; 9=Youth tourism; 10=Training; 11 «Promotion. Group 3 is a 
composite group of measures; "transnational" actions scored on average higher than the two other types of actions, "technology" 
and "cooperation with Eastern and Central European countries". 
Table 3.3 gives a breakdown by size, expressed in Ecus. It indicates that there was in 1993 a much 
larger proportion of small actions (38% against 19% in 1994 and 23% in 1995); that, in 1994 and 1995, 
large actions (above ECU 100000) represented about one half of the total; and that, in 1993, smaller 
projects achieved better results and were more cost effective. However the negative relationship 
between size and (cost) effectiveness is less marked in 1994. 
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Table 3.3 - Overall Technical Assessment of 1993 and 1994 Actions. Breakdown by Size (ECU) 
1993 
Number of actions 
As % of total reviewed 
Overall Assessment 
Cost Effectiveness 
Average size: 121144 
1994 
Number of actions 
As % of total reviewed 
Overall Assessment 
Cost Effectiveness 
Average size: 117030 
1995 
Number of actions 
As % of total 
Average size: 127015 Up to 
50000 
21 
38% 
3.5 
3.9 
7 
19% 
3.9 
4.1 
16 
23% 50001 to 
100000 
11 
20% 
2.9 
1.9 
12 
32% 
3.3 
2.8 
17 
25% 100001 to 400000 
21 
38% 
2.2 
1.7 
18 
49% 
3.3 
2.6 
33 
48% Above 
400000 
2 
4% 
0 
3 
(4%) 
64 3.3 - Case Studies 
Tables 3.4 (parts A and B) give a summary of the main findings of the case studies carried out. 
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Table 3.4 - Summary of Findings from the Case Studies (Part A) 
Project Description Assessment & Key Learning Points 
European Project for the Strengths - Significant involvement of local communities; successful pilot, new course material 
Training of Operators In (fully customized) prepared with possible dissemination; achievement indicators indicate targets 
Tourism in Bulgaria and were met (No of attendees, assessment of university partners, response of participants); site 
Slovakia visited by DG XXIII; good press coverage in Bulgaria 
Weaknesses - Innovative character limited; project delayed due to slow response by DG XXIII; 
project takes place in isolation; no follow up, no strategic framework; no local presence of EU 
delegation; expensive project 
Learning Points - Need to take trainees' needs into account; use of "consecutive translation" 
(instead of simultaneous translation) was a success; ex post evaluation of impact needed; any 
future action must be co-ordinated with PHARE (DG I); use local PR consultant for visibility. 
Tourism & Environment Strengths - Important project with high visibility and potentially large spin off effects; overall 
Prize good organisation; good co-operation with experts; if repeated and improved, could raise profile 
of DG XXIII; use of Euro Info Centres was a success; very good logo; good contribution of the 
PR firm 
Weaknesses - Difficulties in co-operation between main contractor and DG XXIII; lack of 
experience of main contractor; concepts and strategy slow to develop; mobilisation of Member 
States ("Steering Groups") poor in certain cases; weaknesses in selection of projects (mainly j 
because of a language problem); political and geographical mix considerations; 
proposal/contract did not specify procedures/arrangements for follow up and supervision 
Learning Points - For maximum visibility, need dedicated staff in every participating country; 
suggestion to modify the format to adopt a "Festival de Cannes' format with several prizes; 
publication of Newsletter good idea; consider translation all short listed applications in a 
common language; need to improve the checklist used for screening and evaluation; better 
synergy with other projects in field; more time needed for applications to be prepared; more 
involvement of the experts needed ; should become a focal point of DG XXIII's activities. 
Tourism Promotion of Strengths - Good logo and tagline; highly rated consultants used; good idea to use themes to 
Europe as a Destination sell Europe as a destination to avoid national sensitivities 
for Tourists in Long 
Distance Source Markets Weaknesses - Widely perceived by the travel industry as a waste of time and money; no 
sponsorship obtained; are logo and tagline suitable for all markets? Conflict with ETC 
Learning Points - "Pilot" wasted because not followed up; long term view and adequate 
resources needed for a promotion to yield results; it is a challenge to sell Europe as a 
destination; need to use existing networks and to involve NTOs more closely; a campaign 
without sponsors does not make sense. 
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ETI - European Tourism 
Information & Booking Strengths - Good partnership structure and international network; standardisation of existing 
local tourism information services can be a key factor in encouraging use of technology by 
tourists; vision of a European-wide network providing standardised information for tourists; link 
with other initiatives such as EDITIN 
Weaknesses - Innovative character of the technical solution now largely obsolete because of the 
development of the Internet (we recognise that Internet has become only recently a viable 
alternative); sustainability and follow up not ensured but meeting between partners planned for 
March 1996; not all outputs promised in the proposal delivered (eg 60 outlets); involvement of 
two of the partners very limited 
Learning Points - Technical pilot studies in new technologies quickly obsolete; this problem was 
compounded by delays in implementation, and thus need for DG XXIII to fund is unclear unless 
objectives are to establish network and raise awareness; need close links with other 
programmes in the field (eg TIM); project underlined the role of DG XXIII as overall co-ordinator, 
facilitator of trans-regional project. 
Development of a Training 
Strategy fa Employees 
and Trainers within the 
Tourism Sector in the Cold 
Water Regions around the 
North Sea Strengths - Strong rationale because addresses a key problem ie youth unemployment; several 
interesting ideas/concepts and innovative solutions developed; long term impact might be high; 
good follow up and strong local support in Denmark; 
Weaknesses - Proposal of very general nature ("aim is to develop a concept"), no clear 
description of outputs; not a pilot project, more like fundamental research and network building; 
follow up in UK, NL and D uncertain because weak local support as illustrated by poor 
attendance at conference in Denmark; partnership more at the stage of research and intellectual 
debate than operational partnership to design and pilot schemes; expensive project given 
outputs are mainly local and uncertain in other countries 
Learning Points - DG XXIII in fact funded the development of a network of partners linked more 
by the similarity of problem they address than by a common operational project: this may be 
useful but was it the role of the Plan and of DG XXIII? 
The "Art Cities in Europe" 
Programme Strengths - Innovative basic idea developed in a few years into a good product supported by a 
large network of cities; members of the network comprise both famous and less known cities 
which may benefit from being linked with the established cultural cities; good distribution and 
marketing; links with key operators (travel agencies, tour operators); impressive project 
management and efficient implementation 
Weaknesses - Proposal focusing more on means than on objectives; a number of key cities and 
important cultural institutions not yet (or no longer) in the network; benefits accruing to the small 
cities still uncertain; success partly depending on ability of cities to generate bookings 
Learning Points -1996 will be an important year for the future of the project which must now 
demonstrate its commercial viability, ie generate bookings; level of development of network of 
tourism offices varies widely from one city/country to the other one. thus need to strengthen 
structures in ceratin cities/countries; US market must be covered to create additional effect not 
diversion; travel agencies and tour operators must be convinced of the commercial viability of 
the project; need to have a key attraction. 
Yield Management in 
Small and Medium Sized 
Enterprises in the Tourism 
Industry Strengths - High quality final report with good executive summary for dissemination of key 
findings; concept of yield management powerful 
Weaknesses - High cost, particulalry because unclear if the concept is relevant for SMEs 
Learning Points - Poor relevance for SMEs should have been anticipated (eg through 
discussions with experts); the study should have been redefined to meet the needs of the smafl 
hotels in particular, many of which have no computerised reservation systems, or on-line 
reservations capability. 
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3.4 - General Assessment 
Projects and Studies Undertaken in 1993 and 1994 
65 The overall quality of the projects and studies carried out is poor to average (24% of the 1993 and 1994 
actions reviewed are assessed as very poor or poor, 22 in total) while 14% (13 in total)of completed 
projects were judged to be very good. There has been, however, a significant improvement in 1994. 
66 In most instances, the impact of the action is limited in space, scope, and time. There were numerous 
financial commitments (a total of 59 in 1993, 58 in 1994 and 74 in 1995), in our view too many in 
relation to the Tourism Unit's resources to adequately define and monitor them. Most actions had a 
size too small to make a significant impact, although a number of successful small actions were very 
cost effective. The average size of the actions we evaluated was ECU 121144 in 1993, ECU 117030 in 
1994 and ECU 127015 in 1995 (see Table 3.3 above). 
67 Most actions can be classified into two groups. On the one hand, there are actions fulfilling political 
objectives; these actions promote "European" concepts and networks, and are of a fairly high profile 
and newsworthy; on the other hand, there are commercially interesting actions, with sustainability built 
in. These two groups can occasionally coincide in instances such as the project "Routes to the Roots", 
a 1993 project conducted by the University of Oldenburg.. 
I 
68 The promotion of "transnational networks" is, in our view, not an objective, but a means to achieve an 
objective. There is an obligation, under Article 4 of the Council Decision, for cost effective measures. 
The problem with this is that the political objectives eg of promoting transnational networks, may be 
achieved better and more cost effectively through other means and do not need the cover or 
justification of a pilot project which is only occasionally really innovative. Alternative actions that could 
have been considered to promote European concepts and networks include: a "roadshow" going 
round each European country with a high class presentation of European issues and challenges for 
the sector, and including a European agenda; hiring a public relations company with appropriate terms 
of reference and budget; working with existing database providers across Europe to put together a 
consolidated database of European research; launching a Newsletter etc. 
Studies 
69 A number of studies were funded to look at major issues of importance to the tourism sector. These 
were generally well executed, even if the choice of topics (youth tourism, business and conference, 
yield management, for example) did not appear to be based on a careful analysis of needs taking into 
account existing available data. We are aware that the topics relating to studies were proposed and/or 
agreed by the Management Committee. We take the view that more time must be used to define 
precisely the studies to be funded, taking into account existing studies, ongoing research 
programmes, and the travel industry needs. 
70 For example, the value of the study on conference and business tourism is limited by the fact that this 
subject area is already quite well researched. Examples of recent studies are: the 1990 survey of 
European Incentive Travel by Touche Ross; the 1994 study by the Economist Intelligence Unit - EIU on 
the European Conference and Meetings Market; a 1993 publication by the Maison de France on the 
"Tourisme de Congrès". 
71 Another example is the study on yield management (one of our case studies), which is an example of 
a well executed study. However, the relevance of the concept for SMEs is limited. The study focused 
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on the use of computer systems, but most establishments are small and they have no such systems 
applied to reservations. At the same time, they already apply (to a greater or lesser extent) yield 
management for instance when a client can "negotiate" a favourable room rate at an off peak period. 
Most hotels and other accommodation establishments are independent and have rather few rooms. 
They lack marketing strength, including access to computer reservation systems. They are ways to 
help them, for instance in promoting group marketing exercises such as the Gîtes de France scheme. 
72 A number of projects and studies had as their objective the preparation of reference lists of potential 
interest to the sector, for instance a Who's Who of personalities and organisations, a multilingual 
Thesaurus of tourism terms, and a database of student employment opportunities. All of these 
suffered from a lack of in-built post project sustainability, which are essential when data need frequent 
(and often expensive) updating. Some of these projects and studies competed with existing 
commercially available products. These studies had rather low viability and served little useful 
purpose. 
73 Guides to make Europe accessible to disabled tourists (one for the disabled, one for the tourism 
industry) and "the study "Older persons and mobility" are examples of excellent and cost effective 
studies emerging from the Plan. The guide books for the blind are further examples of the strong 
contribution made through the Plan for tourists with disabilities-
Cultural Tourism I 
74 Most of the cultural components of the Plan focused on building-up transnational routes and networks 
based on a range of themes. Most of these were relatively low cost exercises, which produced 
interesting results. At the same time, the sustainability and impact on tourism demand are likely to be 
limited, and the main longer term benefits may arise from the strengthening of linkages between 
regions. If there is no intention to secure a sustained economic benefit, then this must be made clear 
and the actions must be judged on that basis. But the need to be cost-effective remains. 
75 If the strengthening of linkages is the main output, then it is one that may be achieved in other more 
cost effective ways, for instance by organising conferences. Designing routes and trails is in itself not-
sufficient, interesting as these may be, to justify project funding. For example, the route linking 
Wexford in Ireland to Dover in England, France, Portugal and Spain is likely to have very limited value 
except in bringing people together. But it was an expensive way to achieve this. 
76 If we take post project sustainability as a measure of success, then the "Routes to the Roots" project 
(first funded in 1993 with an extension in 1994) is noteworthy. It has developed a commercial 
momentum indicative of longer term sustainability. The project "Art Cities in Europe" (one of our case 
studies) may also develop such a commercial momentum although it too early to define exactly what it 
may be. Another example of a successful cultural route project was that undertaken by Naturfreunde 
Landesberband Saarland (1993) which linked a sensible set of parties, transnational but in relative 
close proximity, and created a range of interesting routes with excellent prospects for sustainability. 
77 The Province of North Holland project (1993) is one example of a feasibility study, in this case for 
cultural trails relating to military heritage in three regions. It had the advantage that the nature of 
participants (local authorities involved in tourism) does mean that there is a reasonable prospect of it 
being sustained. 
78 Much of the work on routes can be classified, and is perceived as essentially promotional within 
Europe, and its impact may largely be to divert existing tourists along the promoted routes. The 
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impact of these routes may not be additional. This does not apply to the routes targeted at non-
European markets (such as "Routes to the Roots" targeted at the North American market). We do 
recognise, however, that the diversification of tourist destinations within Europe is also a legitimate 
objective. 
79 It is also noted that the concept of routes and trails of linked destinations was already well established 
before the Plan, and the marginal value of creating further routes/trails may be limited, and should thus 
be assessed. The innovative aspect of the DG XXIIPs funded trails is their transnational design. The 
longer impact is still unknown and needs research. 
80 Pilot projects are, by definition, test cases. There is no case for funding innovative and speculative 
projects without proper post project follow up, in detail, by independent evaluators, followed by 
publication and dissemination of findings. Apparently successful projects can then be replicated 
elsewhere with a further evaluation process, leading to a definite conclusion. 
Training 
81 The scope of the education and training projects has been quite wide, including development 
networks, curriculum definition, and identification of new professional needs. Those networking 
projects which seem the most successful have been the ones reinforcing existing networks, while the 
creation of new networks is judged in general less successful on sustainability and other grounds. 
82 Where projects have focused on curriculum needs with European commonality - for instance 
curriculum development for sustainable tourism by the University of Deusto-Bilbao (1994 project)- they 
have served very useful roles. Less successful in contrast have been a number of projects which have 
focused on the identification of new professional categories, for instance Club des Métropoles project 
(1993) and the Greta du Golfe project (1994), and the work by Conzorcio Civita (1994) on new 
professional categories. 
83 They have also been a number of one-off training exercises (eg in Eastern and Central Europe) which 
although in themselves useful, do not fit within an institutional or other framework providing a basis for 
follow up and sustainability. Though rather in isolation they may have been effective, although they did 
not fit into a coherent plan and are best avoided in the future unless mechanisms to ensure 
sustainability are put into place. 
84 An example is the 1993 project undertaken by L&R Leisure in Bulgaria and Slovakia. It was well 
executed, but had little innovation and no institutional funding availability for follow-up on site post 
project. The Tourism Belarus project implemented by Frotsi du Limousin (1993) was rather similar, but 
its budget more modest. 
Technology 
85 The technology pilot projects supported under the Plan are broadly either generic, addressing key 
issues such as data definition procedures for information exchange; or specific in seeking to apply 
new technology to specific situations. 
86 This distinction generic/specific broadly coincides with project responsibilities with DG XXIII, where the 
essentially generic projects (such as CIRT, EDITIN, ET1, TIRS, all good projects) are considered as 
"technology" projects and classified under the policy area "Transnational measures". A number of 
projects in the cultural area are dominated by technology solutions and from these specific projects 
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important conclusions relating to their technology can be drawn. Specific examples often include the 
design of multimedia databases of product information, such as the project Odyssey by International 
Interactive Multimedia (1993), and the feasibility study on music festivals by Sygna (1994). 
87 In contrast to the cultural activities funded, there are indications that one way or another, many of the 
"generic" technology projects funded would have in due course proceeded without EC funding, since 
they addressed issues of industry significance, such as globalisation of data or access advances. The 
EC funding, while contributing very usefully to addressing these issues, could be described as 
supportive rather than essential. It has however had a positive impact in accelerating the application of 
new technology to tourism-specific tasks (for example, the 1993 project EDITIN). 
88 The more specifically targeted technology-rich projects have mostly focused on transnational 
databases, often multimedia. These projects, while addressing different specific tasks, have to some 
extent duplicated each other in terms of the technical approaches and software used to implement 
them. In this sense, the most innovative aspects have been their transnational character, and the 
attempt to apply new technology to new areas, such as information handling, previously addressed 
through guide books and maps. 
89 These specific projects have not been particularly successful because there is a strong likelihood that 
most will wither following completion of project funding because they lack any in-built sustainability or 
commercialisation component. These projects appear to have been largely designed to "access" EC 
funds, rather than to address specific needs. 
90 The 1993 project for a multimedia CD Rom presentation of cities linked to the Odyssey (conducted by 
International Interactive Multimedia) is technically similar to the project conducted by Turinform (EPTIS, 
1993) and the Fenici Route (Consorzio Civita, 1993). All three cover widely dispersed tourist centres, 
and none have strong commercialisation or sustainability prospects. All three give the appearance of 
projects designed specifically to respond to the availability of EC funding. These projects could 
usefully be followed up to identify lessons that can be learnt. 
91 The above three projects compare unfavourably with the Infonet project (TIRS, 1993) which is 
designed around a more logical geographical grouping of parties (Saarland in Germany and Lorraine 
in France) and has a clear link with existing database systems, ensuring long term sustainability. 
92 Running through many of the new technology oriented database projects is apparently a failure to 
address post project sustainabilty. Tourism databases need constantly updating and administrative 
and financial mechanisms for achieving this are as important a component of project design as the 
technical components. 
93 These follow up and commercialisation issues were in the majority of cases not satisfactorily 
addressed, with as a result a number of interesting projects completed, but having most probably no 
lasting contribution to make to the tourism sector. 
94 Some of the technology projects were essentially feasibility studies, sometimes for projects which have 
a long term objective behind them (eg Sygna on new technology in cultural tourism). The results may 
be interesting but question marks are attached in respect of ownership of results (particularly when co-
financed) and the associated confidentiality issues. A further example of such a feasibility study is the 
Eurolodging project conducted by AGTE (1993). 
95 One issue that was not specifically addressed in the design of the technology and other projects was 
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the question of relevance to SMEs. Technology offers both a barrier and an opportunity to SMEs, and 
this issue has not been satisfactorily addressed. Some projects omit any link to suppliers at all, 
concentrating on tour operators and travel agents, and omitting hotels. The Internet, with its low cost 
of entry, represents, it can be argued, a major area of potential for SMEs, yet there has not been any 
project, so far, addressing this area. The Eurogites project (1993) is an example of one project 
successfully addressing the specific needs of an important SME sector (Bed & Breakfeast and rural 
accommodation.) 
96 It is also noted that other directorates within the Commission are financing database projects targeted 
at the needs of the tourism sector (eg SAM), yet the compatibility, complementarity and competitive 
aspects of the schemes funded by DG XXIII have not, to the best of our knowledge, been explicitly 
examined in relation to these. 
Actions Initiated in 1995 
97 We give below comments on a selection of the actions initiated in 1995. 
98 The programme for 1995 is dominated by the statistical programme, in particular support to the 
individual countries and major contracts with consultant groups (eg Gruppo Clas) as these countries 
get their statistics into line with the agreed format set out in the Directive. 
99 There is a demonstration "Heritage trails" project (conducted by CTA) which is interesting. As a pilot 
project it is to be hoped that sustainability issues will be fully addressed, and that independent post 
project review - covering also similar 1993 and 1994 projects - will be in due course undertaken to 
draw conclusions and learn lessons. 
100 Another significant project relates to Cyprus, where the objective is the development of cultural and 
special interest tourism, with a focus on SMEs. Another project extending beyond the EU proper 
covers thermalism in the Eastern and Central Europe and in the Mediterranean area. An "exchange of 
views" is a major output identified. The project should also include a formally published report 
documenting overall market characteristics (demand and supply on an European basis) including a 
description of the pilot thermal plants to be studied, together with an assessment of overall future 
prospects for this market segment. 
101 The Network of Tourism and the Environment (EcoNett) being developed by WTTC represents a major 
commitment (ECU 631000) whose potential for success is strengthened by the strong industry 
backing of WTTC. This project has high visibility and good sustainability prospects. To what extent 
WTTC's EcoNett will serve as a practical tool, accessible and useful to not only large multinational 
organisations but also to modest tourism related businesses (small hotels, restaurants, attractions) is 
difficult to judge at this stage. 
102 The 1995 programme covers other important topics such as transport management (eg Airport of 
Palma de Mallorca), and visitor management. In the latter category, the research and piloting to be 
undertaken by the Tourism Company ("Demonstration of the potential for voluntary financial schemes 
within Europe") addresses a very important issue, ie funding mechanisms for environmental 
conservation. Although projects are still at an early stage, the outcome looks less promising for other 
projects dealing with visitor management, such as the "Mantova Ticket Tour" and " HELLO tourism". 
We would have preferred to have seen earlier projects of this kind (eg in Germany, Northern Italy and 
Austria) subjected to a detailed independent technical and financial evaluation before proceeding 
further down this route. 
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Other Actions Carried Out Under the Plan 
103 Activities undertaken under the Plan are described in detail in the various reports to the Council and 
the European Parliament prepared by DG XXIII. 
104 The Tourism Unit has prepared two "horizontal reports" on Community measures affecting tourism, in 
1994 and 1995. They are comprehensive and very informative. The 1994 report is almost exclusively 
descriptive and does not include an assessment of the Community measures; the 1995 report (still a 
draft at the time of our evaluation of the Plan) tries to address this weakness. 
105 In Table 3.4 we summarise the findings (assessment and key learning points) from the three "thematic" 
case studies carried out, ie: 
a the development of Community tourism statistics 
b the selection procedures (based on the 1995 environmental projects generally and on the 
WTTC's "European Community Network for Environment Travel & Tourism" project more 
specifically) 
c the internal co-ordination by the Tourism Unit with other Directorates General of the 
Commission (activity connected with the preparation of the "horizontal report"). 
106 We describe below the achievements in the area of Community tourism statistics, where achievements 
were significant and co-ordination by DG XXIH effective. 
107 The approach adopted by DG XXIII for the introduction of a common statistical set was to work closely 
from the beginning with the key existing stakeholders, Eurostat at the Commission level and the 
National Statistical Authorities at the National level. At the national level, there are practical 
commitments to longstanding data series reflecting their specific needs, and representing substantial 
investments, and there are also different emphases concerning the data collected, reflecting in 
particular geographic realities. For instance the Irish and UK data sets reflect the relative ease of 
collection of demand data in Island situations, while continental Europe has tended to concentrate 
more on supply side measurement. 
108 Data collection is a necessary but expensive procedure in the tourism sector, and it is considered that 
the approach adopted by DG XXIII, following a long period of consultation with National Governments, 
and with the Commission's own Statistical service (Eurostat), was appropriate in the circumstances. 
109 The approach essentially focused on agreeing a common core minimum data set to be collected. 
Around this common core, related but optional data sets have been defined, again with commonality 
of definition, so that overall comparability is ensured. 
110 While the overall co-ordination has been by DG XXIII, the approach has been essentially tripartite (DG 
XXIII, Eurostat, and national governments), and given the challenge represented in reaching 
agreement for a common approach covering such a wide range of countries, the achievement has 
been very significant. A Directive on collection of Statistics has recently been issued (23/11/1995 and 
will come into force by the end 1996), and Governments are now receiving financial support under the 
Action Plan for bringing their respective systems into line with this. A total of 4.5 MECU has been 
committed to this task over a three year period (1995-1997). 
22 Final Report - V2.0 
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SECTION 3 - TECHNICAL EVALUATION OF ACTIONS 
111 The process of identifying and defining data sets, and responding to the methodological problems 
and hurdles presented by varying conditions in member countries, has been assisted by external 
consultants, selected by Eurostat and contracted on a trilateral basis. Consultants have also assisted 
in the definition of appropriate dissemination procedures, in particular for the Statistical Yearbook for 
tourism, and for the publication Tourism in Europe". The most recent edition of this excellent 
publication appeared in 1995, and it is scheduled for annual publication in future. 
23 Final Report-V2.0 
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Table 3.4 - Summary of Findings from the Case Studies (Part B) 
Description of Action Assessment & Key Learning Points 
Theme 1 : Strengths/Achievements - Overall, achievements are very significant and the 
approach appropriate; Directive "welcome as a first step"; co-operation with other 
organisations (OECD, WTO, and of course Eurostat and national institute of statistics) 
Development Ot Community takes p|ace eg to avoid duplication of efforts and develop core common set of data 
tourism Statistics and methodologies; closely with the key existing stakeholders, Eurostat at the 
Commission level and the National Statistical Authorities at the National level. 
Weaknesses - Methods for implementation (Eurostat, National Institutes of Statistics) 
slow and "bureaucratic"; certain interviewees feel that the Directive has taken the 
"lowest common denominator"; a number of areas perceived as not properly covered, 
such as inbound tourism for long haul tourism and more generally on the demand 
side; lack of ambition, too conservative an approach? But it is also recognized that 
going too fast/far may put the whole endeavour at risk; political factors also slowing 
the process 
Learning points - Must be a focal point for DG XXIII because of clear need, demand 
expressed by industry, unanimity among member states and industry participants; 
use of private statistical organisations raises controversy, being supported by a 
number of organisations representing the private sector while being questioned by 
interviewees from international public organisations; however, there is a consensus 
for more co-operation private/public in particular for demand statistics. 
Theme 2: Selection procedures Strengths/Achievements - Establishment of network will receive EU support for three 
years; contractor is a major international professional body ie good trade links and 
. political strength; contract specifies project outputs and the content of progress and 
(based on 1995 environment annual reports; annua) audited financial statement to be produced annually ; 
projects) involvement of DG XI, DG XII and tourism industry 
Weaknesses - How will the data base be updated regularly? What is the incentive for 
suppliers to provide data on a regular basis to maintain the database? The exact 
coverage of the concept of "environmental travel" needs to be specified 
Learning points - Need to set up mechanisms to ensure that the database is 
maintained and regularly updated. 
Theme 3: Strengths/Achievements - Increasing awareness of the importance of co-ordination 
with other EU departments; Inter Service Group (ISG) meet regularly; DG XXIII "good 
at organising"; good bi-lateral contacts; there is a "permanent flow of information" 
Internal CO-ordinatlon by between departments; consultation for the Green Paper was a success; good co-
Tourism Unit operation with DG V in the context of the "HELIOS" group; General Directors of DG V 
and DGXXIII to co-preface publications 
Weaknesses - Participants to ISG not well prepared, but situation improving; turnover 
of representatives for some DGs and thus lack of continuity; DG XXIII staff perceived 
as over-worked, "not always able to cope" 
Learning points - ISG should be better prepared by participants (DG XXIII normally 
sends the agenda and relevant documents about ten working days in advance); 
interest in ISG meetings increasing as participants more familiar with issues; thematic 
discussion well received; Suggestion of format made by one interviewee: 1) 
information given by DG XXIII, 2) round table on work in progress in other 
departments, 3) take up precise points and questions; Unit needs more tourism 
specialists to be able to claim a co-ordinating role within EC; need to designate a 
unique, permanent correspondent/representative to ensure good follow up. 
24 Final Report - V2.0 
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SECTION 4 - ADMINISTRATIVE AND OPERATIONAL ASPECTS • 
SECTION 4 - ADMINISTRATIVE AND OPERATIONAL ASPECTS 
4.1 - Description of the Administrative and Management Arrangements 
112 Administrative arrangements, financial resources and activities undertaken under the Plan are 
described in detail in the 1994 and 1995 "horizontal" reports to the Council and to the European 
Parliament prepared by DG XXIII. In this section we give an overview of the main arrangements in 
place; we then give our assessment. 
Management, Advisory and Consultative Committees 
113 The Commission is assisted in implementing the Plan by the Management Committee composed of 
representatives of the Member States of the European Union (Council Decision of 13 July 1992). In 
January 1994, membership of the Management Committee was broadened to include the member 
states of the Economic European.Area, and, in January 1995, to include Liechtenstein. The 
Management Committee met on nine occasions over the three years, twice in 1993, four times in 1994 
and three times in 1995. 
114 An earlier Council Decision of 22 December 1986 established an Advisory Committee under the 
auspices of the Commission, made up of members designated by each Member State. The task of 
this Committee was to facilitate exchange of information, consultation and cooperation on tourism, 
and, in particular, on the provision of services for tourists. This Committee met four times in 1994 and 
three times in 1995. It did not meet in 1993. 
115 Also prior to the launch of the Plan, the Commission established a Consultative Committee made up of 
the representatives of various industry interests. The Consultative Committee has no legal basis and 
was established by the Commission to allow dialogue and consultation with the industry. During the 
implementation of the Plan, the Consultative Committee met on five occasions, once in 1993, twice in 
1994 and twice in 1995. 
Staffing 
116 The number of staff employed in the Tourism Unit (permanent and temporary staff, all grades and 
statuses, except stagiaires) was 17 in 1993 (11 grade A, one grade B and five grade C), 14 in 1994 (11 
grade A, one grade B and two grade C), 16 in 1995 (11 grade A, one grade B, and four grade C) 
(situation on 1 January). At the end of 1995, the number of staff employed was 17 (13 grade A, one 
grade B, and three grade C). (Grade A staff are the administrators and above, grade B the assistants 
and grade C the support staff.) 
117 A total of 29 stagiaires were employed for periods of three, or, more usually, five months. 
118 In 1994, the head of the Unit was transferred, and later dismissed from the Commission following 
disciplinary hearings. His acting deputy was suspended in 1994 and later dismissed. 
119 A total of 36 different staff were employed in 1993-95. Only five staff members were employed by the 
Unit through the whole 1993-95 period. Staff turnover was thus high at 86%. 
120 The ratio of permanent staff to total staff (excluding stagiaires) was 5:17 at the start of the Plan and 
rising significantly to 11:17 by the end of 1995. 
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121 Out of the 36 staff members, we estimated that ten (28%) can qualify as "tourism experts" (we define 
"tourism expert" as someone who is seconded from a Ministry of Tourism or equivalent, who has 
worked in the industry, or has a degree in the field). Certain other staff members had gained tourism 
experience "on the job" before joining the Unit. 
Implementation Mechanisms and Administrative Procedures 
122 The Plan was implemented via three annual work programmes. A "timetable of priorities" for 1993 was 
specified in the Plan. 
123 The priorities and work programmes for 1994 and 1995 were prepared by DG XXIII and agreed with the 
Management Committee. 
124 The funds were disbursed through five different mechanisms: 
a open calls for tenders (published in the Official Journal) for 100% funded actions. A total of 15 
projects were financed through this mechanism (7 in 1993, 4 in 1994, 4 in 1995), representing a 
total spend of ECU 3.68 million 
b open calls for proposals (published in the Official Journal) for co-financed actions (jointly-
funded up to a maximum of 60%). In total 74 were co-financed (35 in 1993, 23 in 1994,16 in 
1995), representing a total spend of ECU 8.45 million 
c 25 co-financed projects were supported via DG XXIIPs Subvention Committee, ie without a 
competitive process (14 in 1993, 7 in 1994 and 4 in 1995) representing a total spend of ECU 
1.43 million 
d 73 direct contracts of which 43 were for the development of Community statistics (2 in 1993, 20 
in 1994 and 51 in 1995) representing a total of ECU 5.95 million in total, of which 84% went to 
the Member States 
e and restricted selection procedures were used in five cases (two pilot projects and three 
conferences), amounting to ECU 251000. 
4.2 - Assessment of Arrangements in Place 
125 Our assessment is based on a desk analysis of procedures in place and of staff statistics; on the 
evidence collected through the case studies and project file reviews; and on the results of our 
interviews with the Tourism Unit staff, members of the Management Committee, and members of the 
Consultative Committee. We also reviewed most minutes of the meetings of these Committees. 
Relations with External Bodies 
126 The contacts with the travel trade have not been strong enough. The main non -governmental 
contacts are with the associations and pressure groups of various kinds and with consultants. 
127 The Unit does not seem to have a clear and operational vision of current "market positioning" vis-à-vis 
competing and complementary service providers such as: National Tourism Offices (NTOs), 
international associations of importance (such as ETC, IATA, WTTC, WTO), internal competing and 
complementary service providers such as DG I, DG VIII and other EU directorates. 
26 Final Report -V2.0 
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Administrative Arrangements and Procedures 
128 Administrative arrangements and procedures were weak at the beginning of the implementation 
period, but have been significantly improved in 1994 and 1995. 
129 Members of the staff are clearly very committed and hard-working. Staff members are overloaded with 
administrative tasks the rationale and effectiveness of which are not always evident. The balance 
between quality work (project preparation, site visits, contacts with contractors etc) and administrative 
tasks is unfavourable. 
130 Communication lines at DG XXIII are lengthy, procedural and slow, and so is the decision-making 
process. 
131 The morale of the staff is rather low and staff members are displaying an exemplary resilience. Low 
staff morale is partly explained by the factors described above (administrative workload, lengthy 
communication lines etc), but also by the negative impact on the Unit of the allegations relating to 
senior staff members which have tarnished its reputation and image. 
132 We observed that the amount of administrative work performed by the Unit is considerable. The Unit 
estimates that they receive around 100 external letters weekly. Telephone calls come in "non stop". 
Parliamentary questions come in regularly, usually with tight deadlines. Many documents must be 
translated and often re-formatted because of a software conflict between the Translation Office in 
Luxembourg and DG XXIII. 
133 We also identified the following shortcomings in the area of staffing: 
a high turnover 
b low percentage of "tourism experts" and generally inadequate presence of tourism skills 
c inadequate training (eg in area of financial and project management) 
d understaffing for the financial administration 
e high number of stagiaires: it takes time to supervise them if they are to be used effectively. 
134 Given the limited staff resources available at the Unit, it was ill-advised to implement the Plan through 
the funding of such a large number of projects and studies (mainly through open calls for proposals) 
because of the heavy administrative burden implied by such an approach as illustrated by Table 4.1 
which gives an analysis of the results of the various calls for proposals published in the Official Journal. 
27 Final Report - V2.0 
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SECTION 4 - ADMINISTRATIVE AND OPERATIONAL ASPECTS • 
Table 4.1 - Project Se 
1993 
1994 
1995 ection. Calls for Proposals (Part-Funded Projects) 
Stage 1 
Formal Conditions 
368 
(86 failed) 
281 
( 28 failed) 
288 
(39 failed) Stage 2 
Screening 
282 
(158 failed) 
253 
(139 failed) 
249 
(130 failed) Stage 3 
In-Depth Evaluation 
124 
(63 failed) 
114 
(93 failed) 
119 
(72 failed) Final Selection 
61 shortlisted 
33 selected 
21 selected 
47 shortlisted 
15 selected 
135 One negative effect of inadequate staffing and existing procedures was that the quality of a number of 
selected proposals was poor, for example without clear objectives, without a strong project team, or 
with a very limited innovative aspect. The projects selected as a result of the 1995 calls for tenders 
and for proposals display a significant improvement in quality, and expectations of good results are 
running high. 
136 The terms of reference of the 1993 and 1994 calls for proposals and invitations to tender were very, 
weak and lacked clarity. In particular, outputs (deliverables) and sustainability requirements were riot 
adequately covered. Current contracts have much improved in terms of specifying outputs, but these 
could still be more precise in terms of measurable indicators, eg by giving target number of attendees 
at seminars and conferences. Contractors should however be required, as much as possible, to 
respond specifically to each output and target identified in their contract in their final reports. 
137 We understand that in certain instances proposals were selected for "political" reasons, ie to achieve 
some "fair" distribution of the funds available among Member States. More efficient mechanisms to 
achieve this objective should be designed. 
138 As illustrated by the case study looking at the selection in 1995 of the contractor for the tourism and 
environment projects, the procedures now in place have improved significantly. Much improved 
procedures and forms have been introduced, including progress reporting and an interim evaluation 
by the Unit at the interim report phase. The evaluation procedure (as described in an internal 
Explanatory Note on Evaluation Procedure) is now well structured. 
139 However, there is still a lack of clarity in a number of areas: 
a whether and how the political and geographical mix is taken into account at an early stage 
b the consultation of other Directorates General on the proposed projects prior to the final 
selection. 
140 We were indeed concerned by the fact that the evaluation and screening of projects take place without 
any input from officials or experts external to DG XXIII prior to the final selection. Although we 
understand that this is common practice at the Commission, we take the view that this is inadequate. 
141 Until 1995, measurable indicators of performance were not systematically defined at the outset (for 
example as part of the contractors' contract). Without objective measures, it is difficult both for the 
contractors and evaluators to measure progress against expectations. 
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142 Financial management was poor during the first years of the implementation but has then improved. It 
still needs to be strengthened. Poor performance in the area of financial management was not only 
due to the mismanagement by senior members of the staff (who were dismissed in 1995), but also to 
inadequate systems (such as poor use of information technology), inadequate staff training, and 
insufficient staffing (only one grade B through most of the Plan implementation). 
4.3 - Recommendations 
Relations with External Bodies 
143 The effectiveness of the Plan could be enhanced by: 
a improving the partnership with the Member States. The Unit could make a number of 
propositions to the members of the Management Committee and put this topic on the agenda 
of a forthcoming meeting 
b encouraging a more proactive role of the various Committees, with the support of experts, in 
identifying projects (innovative, trans-European, well funded, etc.) 
c improving consultation mechanisms with the industry, for example by setting up ad-hoc working 
groups j 
d increasing the involvement of NTOs 
e involving other Directorates General in the selection process before the final selection is made 
by DG XXIII 
f involving independent and external experts in the selection process (one possibility is to have 
every Member State to nominate one or two experts who would be called in to review proposals 
submitted by potential contractors from other Member States). 
144 More generally, there is a need to extend the level of participation of relevant stakeholders/partners 
(both private and public) to broaden ownership and commitment. 
145 The (Management, Advisory and Consultative) Committees could become the main vehicles for 
dissemination of the results of the activities funded or undertaken by the Unit. 
146 These Committees could also be used to help the Tourism Unit identify needs (eg possible pilot 
projects) and to ascertain that EU funding will not duplicate existing initiatives. Independent experts 
could fulfill a similar role. 
147 DG XXIII has been very active in the area of co-ordination within the Commission. The co-ordination 
with the other DGs is a very important role for the Unit that must be given even more emphasis. The 
Unit should seek to set the standard in this area. This role has several facets, such as bringing tourism 
within the orbit of other EU programmes, and informing the tourism (both private and public) 
stakeholders of the developments taking place at the Commission. 
29 Final Report-V2.0 
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Staffing 
148 In the area of staffing, corrective actions should be considered: 
a to reduce staff turnover 
b to improve the in-house technical tourism expertise, eg through secondment from NTOs, and 
improvements in training provision 
c to provide much more training to the staff (at all grade levels) 
d to review the information technology in place. 
Administrative Arrangements and Procedures 
149 In order to establish administrative standards, the Unit should review its administrative arrangements to 
specify a number of performance indicators and targets. For example: every external letter to be 
acknowledged (by fax, telephone, or letter) within five days and to receive a reply within eg 15 working 
days (if realistic). 
150 There is a need to review internal procedures to free up time to prepare, monitor, and follow up the 
projects. The staff are apparently using a disproportionate amount of time to essentially non 
productive paperwork. 
151 There is a need to strengthen the monitoring and evaluation of projects, and, more generally, to design 
and implement simple but efficient procedures, designed at the outset and not retrofitted. Also, more 
site visits should take place. Monitoring and evaluation procedures should be reviewed along the 
following lines, although we recognise that some of the elements are already being developed: 
a to put in place simple procedures to monitor and evaluate the actions as they are implemented 
(on-going monitoring and evaluation) 
b to set up ad-hoc working groups to prepare, steer and evaluate actions. These groups should 
include a small number of recognised experts in the field and representatives of the private and 
public partners directly concerned 
c to commission an interim evaluation at the mid-point of the Plan to draw first lessons, take 
corrective actions and inform the preparation of future actions 
d to achieve a much closer involvement of DG XXIII in monitoring (in a spirit of partnership) the 
contractors. This would require more visits to the contractors, attendance at key events (eg 
conferences, workshops) and systematic follow up 
e longer term follow up of completed projects should take place, with on site visits or follow up by 
phone. Key aspects to cover include: sustainability, outcomes, commercialisation and 
dissemination of results 
f the Unit should consider drawing from experience of other DGs and programmes, in particular 
in the area of monitoring and evaluation, consider adopting best practice from other 
Directorates General of the Commission. For example, DG I and DG VIII have standardised 
30 Final Report - V2.0 
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SECTION 4 - ADMINISTRATIVE AND OPERATIONAL ASPECTS 
their approach to project design using the so-called "Logical Framework" approach, fully 
documented by the Commission, and used for training not only EC staff but also their partners 
such as consultants. Use of this framework provides a standard format and checklist through 
which the project design, implementation, and evaluation cycle naturally falls 
g a copy of all monitoring and evaluation forms prepared during the course of an action should 
be filed centrally and analysed on a regular basis (say every six months). A short summary 
report drawing together the key lessons should be prepared and circulated within the DG and 
the other Directorates. 
152 Actions should also be considered to ensure that an adequate dissemination/distribution of project 
results takes place. Options include: 
a to earmark resources in the project budget at the preparation/selection stage (we understand 
that this has been done in 1995) 
b in relevant cases, to make the last payment conditional on the preparation of a publishable 
output, in which case such a publication must be explicitly itemised as an output in the contract. 
153 A rigorous and continuous pre-registration process for all consultants covering some basic information 
could have prevented some of the problems that have arisen from "phantom" companies, and have 
provided back up in ensuing litigation and other problems. One possibility is to operate a system 
inviting consultants to confirm regularly (eg annually) their interest to be on the list, and if they don't 
their name would be automatically deleted. 
154 All projects with media outputs (disc, CD, video, others) should have those separately evaluated by an 
appropriate mix of technical and professional staff. Some of the existing outputs, integral to projects, 
were not (to the best of our knowledge) examined. 
155 Some outputs are in non-standard formats. DG XXIII should specify output formats eg one copy of all 
videos in VHS format, discs in PC format unless otherwise stated. 
156 Other corrective actions to be considered by the Unit are: 
a to reduce the number of projects and studies funded in order to increase their impact and to 
limit administration 
b to review the "call for proposal" procedure to reduce the administrative load and to maximise the 
effectiveness of the procedure 
c to increase the proportion of meetings organised around a theme or a technical issue, and 
drastically reduce the number of formal meetings too often characterised by the passivity of the 
audience 
d . to launch a Newsletter or similar (possibly including a copy on the Internet) to present the 
activities of the Tourism Unit. 
157 Action should be taken to improve the internal information systems (such as project databases) so that 
more management information is generated to support staff members and to consider the systematic 
and generalised use of e-mail for example to improve communications within the DG and with the 
31 Final Report -V2.0 
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other DGs. 
158 The Unit should be given more autonomy in a number of strictly operational areas such as the 
management of the budget for missions. The Unit should be able to respond quickly and flexibly to 
the needs of project implementation (site visits, participation in workshops etc), within the strict limits 
of an agreed budget. This should of course not make the Unit less accountable or transparent, but 
simply more efficient. 
Miscellaneous 
159 Timing. The annual cycle of the Plan had a negative impact on the quality of the projects selected and 
on the their implementation. A longer timespan is certainly required (eg three years) and projects 
should take account of the special seasonal considerations of the industry. 
160 Co-financing issues. There are a number of issues related to co-financing that must be addressed. The 
maximum level of EU contribution of 60% should be reviewed and possibly made more flexible. Other 
issues are how to check that the contributions of other sources of financing are real and how to avoid 
funding projects that have already started or are even completed. 
161 EC logo. The continuing use of the EC logo needs to be controlled: only good projects should be 
entitled to use the EC logo. Registration issues should be clarified and resolved. 
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SECTION 5 - ASSESSMENT BY CONTRACTORS 
SECTION 5 - ASSESSMENT BY CONTRACTORS 
5.1 - Methodology 
162 In order to obtain an assessment by contractors of the main aspects of project (and study) 
implementation, we sent a short questionnaire to 77 contractors for the 1993 and 1994 projects. This 
questionnaire covers the following aspects: 
a project description 
b achievement of objectives 
c project implementation 
d assessment of various aspects of project implementation 
e lessons, recommendations, suggestions and best practice. 
163 The proforma used is given in Appendix IV. Note that in this section, the term "project" covers both 
projects and studies funded under the Plan. 
164 Although we told the contractors that their individual responses will remain private and confidential to 
Price Waterhouse, and will only be aggregated prior to discussion with DG XXIII, we feel that there is a 
bias in the overall assessment of the project (Tables 5.1 and 5.2 below) because of the self-
assessment nature of the questions. To address this issue, we treated certain responses with caution. 
However, we donl think that this bias has a significant influence on the other aspects of the 
questionnaire such as the assessment of the various aspects of project implementation. 
5.2 - Analysis 
165 We sent 77 questionnaires, and received 47 responses, thus achieving a response rate of 61 %. The 
number of valid responses varied between questions, but there were typically between 42 and 36 valid 
responses. 
Degree of Achievement of Objectives 
166 We asked the contractors to rate the degree of achievement of the project objectives. More than half 
the contractors considered that they have been very successful in achieving the project objectives, 
while one third of them replied that they have been fairly successful. In total 86% of the respondents 
felt that they have been successful in achieving the main objectives of their action. There is no marked 
difference between 1993 and 1994 projects. Table 5.1 below summarises the results. 
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Table 5.1 - Degree of Achievement of Objectives 
1322 
Number of valid 
responses: 19 
1324 
Number of valid 
responses: 23 
Total Number of 
valid responses: 42 Not at all 
successful 
0 
0 
0 Not very 
successful 
0 
2 
2 
(5%) Fairly 
successful 
7 
8 
15 
(36%) Very 
successful 
9 
12 
21 
(50%) Mixed 
2 
1 
3 
(7%) Not relevant 
or no reply 
1 
0 
1 
(2%) 
Additionality: What Would Have Happened in the Absence of the Plan's Funding 
167 To obtain an assessment of the Plan's additionality, we asked the contractors what would have 
happened in the absence of EU funding. The majority of respondents (58%) consider that EC funding 
has been additional ie the project would not have taken place in the absence of the Plan, while another 
36% thought that the project would have taken place later or on a smaller scale. 
Project Implementation 
168 We also asked the contractors to assess various aspects of the project implementation, and to give an 
overall assessment of the project's implementation. Tables 5.2 and 5.3 below give the scores 
obtained. 
Table 5.2 - Overall Assessment of Pro 
1322 
Number of valid 
responses: 19 
1994 
Number of valid 
responses: 23 
Total number of 
valid responses: 42 Poor or very 
poor 
2 
(10%) 
0 
2 
(5%) ect Implement 
Average 
4 
(21%) 
0 
4 
(10%) ation 
Good 
7 
(37%) 
15 
(65%) 
22 
(52%) Very good 
6 
(32%) 
7 
(31%) 
13 
(31%) Do not know 
0 
1 
(4%) 
1 
(2%) Not relevant 
or no reply 
0 
0 
0 
169 Table 5.2 indicates that 83% of the respondents think that the project implementation has been good 
or very good. This positive assessment is not surprising as the contractors are in fact to a large extent 
34 Final Report-V2.0 
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assessing the quality of their own work. When asked to assess the different components of project 
implementation, the contractors' answers depict a much less rosy picture of the situation, as shown by 
Table 5.3. 
Table 5.3 - Assessment of Project Implementation* 
Indicators No of contractors As a % of total No of valid 
"dissatisfied" ** responses 
(No of responses) 
A - Planning & preparation 6 14% 
A1 - Clarity of objectives 5 12% 
A2 - Quality of project design 3 7% 
A3 - Effectiveness of partner(s)' 16 38% 
participation in preparation and 
planning 
B - Dissemination 10 24% 
B1 - Follow up of project after 15 36% 
completion 
B2 - Dissemination of main results 13 31 % 
C - Management by Tourism Unit 9 21 % 
staff 
C1 - Financial & administrative 12 29% 
monitoring by Tourism Unit staff 
C2 - Overall efficiency of Tourism 9 21 % 
Unit staff 
C3 - Responsiveness of Tourism Unit 11 26% 
staff 
D - Co-ordination 7 17% 
D1 - Quality of dialogue between 9 21% 
Tourism Unit staff and other partners 
D2 - Coordination with other EU 8 19% 
departments and non EU agencies 
170 * Multiple response is possible 
** Measured by total of responses in three categories: average, poor, very poor. 
Table 5.3 above indicates the a number of shortcomings, weaknesses, and areas for improvement. 
The main shortcomings/weaknesses of project implementation are perceived to be in the following 
areas: 
35 Final Report-V2.0 
C^ 
EVALUATION OF THE ACTION PUN TO ASSIST TOURISM 
FINAL REPORT 
SECTION 5 - ASSESSMENT BY CONTRACTORS 0 
(1) Effectiveness of partner(s)' participation in the preparation and planning of the project: 38% of 
contractors had difficulties in this area 
(2) Dissemination and follow up: these areas are clearly perceived as the weakest aspect of project 
implementation: about one third of contractors take the view that the follow up after completion and the 
dissemination of the results have not been satisfactory. 
(3) Management by the Tourism Unit staff: more than one quarter of respondents were not satisfied by the 
quality of financial and administrative monitoring and by the responsiveness of the Unit's staff. 
5.3 - Lessons. Recommendations. Suggestions and Best Practice 
171 A number of lessons/recommendations/suggestions were also made by the contractors who 
responded to our questionnaire. 
Monitoring and Evaluation 
172 It is essential to have more communication between the Unit, the project coordinator and the other 
project stakeholders. In particular, during the preparation/planning phase of the project, more co-
ooperation between the Unit and the contractors is needed. 
173 There is s need for more exchange of information on (past, current) projects in similar fields of 
intervention. 
174 DG XXIII should supervise much more closely the projects funded. There is also a demand for more 
contacts (such as site visits) by Unit officials. 
175 Indicators of achievement and targets should be specified (and quantified as much as possible) at the 
beginning of the project. 
176 Procedures followed by DG XXIII should be streamlined, simplified. In particular, the decision-making 
process must be made much more efficient. 
177 Steps must be taken to improve the responsiveness of DG XXIII staff. 
Follow Up and Dissemination of Results 
178 Suggestions were made to improve the dissemination of results: 
a to circulate copies of the main deliverables to all the contractors 
b to earmark in the project budget an amount for dissemination and distribution of key outputs 
c to include in the budget, where relevant, an element for marketing the outcome of the project. 
179 More consideration should be given to the sustainability of actions. 
36 Final Report-V2.0 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM gjjk 
APPENDIX I - DESCRIPTIVE STATISTICS OF ACTIONS fHF 
This appendix contains the database of the actions implemented under the Plan. 
Key for Classification of Actions bv Type 
1 = Improving knowledge (includes statistics, studies and consultation) 
2 = Staggering holidays 
31 = Transnational 
32 = Technology 
33 = PECO (Eastern and Central European Countries) 
4 = Tourists as consumers 
5 = Cultural tourism 
6 = Tourism and environment 
7 = Rural tourism 
8 = Social tourism 
9 = Youth tourism 
10 = Training 
11 = Promotion 
Final Report -V2.0 
£>% 
APPENDIX I EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 
TOURISM AC" 
Contract Number 
1993 
93 180001 
93 530001 
93 540004 
93 540007 
93 540009 
93 540010 
93 540012 
93 540013 
93 540014 
93 540015 
93 540017 
93 540018 
93 540019 
93 540020 
93 540021 
93 540022 
93 540023 
93 540024 
93 540027 
93 540028 
93 540029 
93 540030 
93 540031 
93 540032 
93 540035 
93 540036 
93 540037 
93 540039 
93 540040 
93 540041 
93 540043 
93 540044 
93 540045 
93 540046 
93 540047 
93 540048 
93 540054 
93 540055 
93 540056 
93 540058 
93 540059 
93 540060 
93 540062 
93 540063 
93 540064 
93 540066 
93 540068 
93 540069 
93 540071 
93 540072 
93 540076 
93 540077 
93 540079 
93 540080 
93 540081 
No projects 93: 
Total 1993: 
Mean value 93: 
Maximum 93: 
Minimum 93: •ION PLAN - PROJECTS & STUDIES 1993-1995 
Main Contractor 
Delvico Bates 
GIAT 
Forum Dello Svilluppo 
FIPE 
AA-Automobile Association 
International Interactive Multimedia 
GSI Transport Tourism 
Regione Toscana 
GEIST 
Club des Eurométropoles 
TIRS Initial 
Budget 
(ECU} 
999628 
697800 
23250 Type 
ùf 
Action 
11 
1 
1 
50000i 33 
99000j 32 
1200001 32 
2132001 32 
200000! 32 
244635 j 32 
130000; 31 
102300 ; 32 
Chambre Régionale de Commerce Rhône-Alpes I 96000 i 31 
AGTE 
CISET 
Province of North-Holland 
Instituto Geogrâfico Nacional (IGN/CNIG) 
Wexford County Council 
Regione Emilia-Romagna 
Conselleria de Cultura, Educacio, i esports 
EETAA - Hellenic Agency 
Preseli Pembrokeshire 
Universitât Oldenburg 
Interface 
Naturfreunde Landesberband Saarland 114000! 32 
61980: 5 
70000j 5 
606061 5 
63600; 5 
460751 5 
900001 5 
136445i 5 
29275 ! 5 
61000: 5 
36000: 5 
46000' 5 
RED- Ruralité Environnement Dévelopement 49659, 5 
Royal National Institute for the Blind j 47586 j 5 
Landkreis Eisleben i 102000; 5 
Ministero del Toujismo e dello Spettacolo I 48000 5 
GruppoClas ; 105000. 5 
System TV i 160000 3 
CEPFAR ! 15000; 31 
FynTour 9840 ; 5 
Eurogites i 34278 31 
ETAG ! 10200 1 
L & R Leisure PLC ! 220000 33 
AIT/FIA 11400 1 
Contour i 49000 1 
Mobility International i 60000. 8 
Bates & Wacker 42100 1 
Directors General de Turismo 150000 1 
Mobility International 50000 8 
Associano Nacional de Jovens 10189 9 
ETEN1 100800 10 
TURINFORM 154890 32 
Frosti du Limousin 32000 33 
DGF - Deutsche Gesellschaft fur Freizeit 20000 1 
EFCO 120000 7 
TV5 i 198000 5 
ITE 200000; 3 
ETEN 2 95750 10 
FEG 20000 12 
CETOS 65000 8 
Agrupacion de Asesores ! 199620 1 
Mouvement j 110258 1 
HTL Conseil i 381550, 6 
55 i 55 
6663 < "000 ECU 
121144 
999628 ECU 
ECU 
9840 i ECU 
61 
APPENDIX EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 
TOURISM AC 
Contract Number 
1994 
94 540011 
94 540018 
94 540019 
94 540023 
94 540024 
94 540025 
94 540026 
94 540027 
94 540028 
94 540029 
94 540031 
94 540032 
94 540033 
94 540034 
94 540035 
94 540036 
94 540037 
94 540039 
94 540043 
94 540044 
94 540045 
94 540046 
94 540047 
94 540048 
94 540049 
94 540050 
94 540051 
94 540053 j 
94 540054 
94 540064 
94 540065 
94 540067 
94 540075 
94 540077 
94 900107 
94 900118 
94 900120 
No projects 94: 
Total 1994: 
Mean value 94: 
Maximum 94: 
Minimum 94: ION PLAN - PROJECTS & STUDIES 1993-1995 
Main Contractor 
Greek National Tourist Organisation (conference) 
Earthwatch Europe 
World Systems Europe 
Gemeinnutziger Verein zQr Forderung der Region Sandl unteres Muhlviertl 
Naturfreunde Saarland Projekt Sanfter Tourismus 
SYGNA A/S 
FOTVE/FECTO - Fédération des Offices du Tourisme des Villes Européennes 
Royal National Institute for the Blind (RNIB) 
BC Brandenburg-Consult GmbH 
Universitët Oldenburg/FB3 Forschungsstelle Niedersachsische - Nausa 
Baltic Tourism Cooperation 
Il Quartettone 
Foden Fyn Tour 
Arthur Andersen SA 
Horwath Axe Consultants-Tourisme Hôtellerie Loisirs 
Movimento Consumatori 
CTS Centra Turistico Studentesco e Giovanile 
Conference Etalement des Vacances 
Gruppo Clas 
Greta du Golfe 
Lancashire Enterprises 
Universidad de Deusto-Bilbao - Inst. de Estudios de Ocio 
Fondo Iberico para la Conservaciôn de la Naturaleza 
ITD-lnstitute of Tourism and Services economics 
Hjoerring Business College 
EMI-Effective Management International 
Consorzio Civita 
(ARIFOC) Association Réunionaise Interprofessionelle pour l'Insertion et la Formation Continue 
Centre Méditérannéen d'Environnement d'Athènes 
ETOA - European Tour Operators Association 
AFI Alpenforschunginstitut 
Ministère de rEquipement, Transports et Tourisme 
Atlas (Tilburg University) 
Concorde Travel 
Rita de Landtsheer 
European Travel Commission (ETC-CET) 
Agence Européenne pour la Culture - AEC (UNESCO) 
37 
4330 
117030 
392600 
11100 Initial 
Budget 
LECU) 
43200 
50000 
249233 
59694 
94995 
79175 
195000 
71587 
99610 
183300 
129000 
64031 
49800 
392600 
333000 
160610 
167615 
50963 
167000 
146830 
62500 
120000 
127000 
115000 
195200 
78995 
176872 
134416 
102000 
30187 
104040 
63553 
50000 
11100 
71000 
50000 
51000 Typ» 
Of 
Action 
1 
6 
1 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
1 
1 
4 
9 
2 
5 
10 
10 
10 
10 
10 
10 
10 
10 
10 
10 
11 
1 
1 
33 
33 
2 
9 
5 
37 
•000 ECU j | 
ECU 
ECU i 
1 
i 
ECU ! ! 
^ O 
APPENDIX I EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 
TOURISM AC 
Contract Number 
1995 
9S530001 
95530002 
95530003 
95530004 
95530005 
95530006 
95530008 
95530009 
95530010 
95530011 
95530012 
95530013 
95530014 
95530015 
95530016 
95530017 
95530018 
95530019 
95540013 
95540014 
95540015 
95540016 
95540017 
95540018 
95540019 
95540027 
95540028 
95540030 
95540031 
95540032 
95540033 
95540034 
95540035 
95540037 
95540038 
95540039 
95540040 
95540041 
95540042 
95540043 
95540044 
95540045 
95540046 
95540047 
95540048 
95540049 
95540050 
95540054 
95540055 
95540056 
95540057 
95540058 
95540059 
9554006 
95540060 
95540061 
95540062 
95540063 
95540065 
95540066 
95540067 
95540068 
95540069 
95540070 
95540072 
95540075 
95540076 
95540079 
95540080 
No projects 95: 
Total 1995: 
Mean value 95: 
Maximum 95: 
Minimum 95. "ION PLAN - PROJECTS & STUDIES 1993-1995 
Matrt Contractor 
y 
Osterreichisch Werbung (A) 
Statistics Finland (FIN) 
Ministère Equipement, Transports et Tourisme (F) 
The Stat. Bureau of Iceland (IS) 
Inst. Nacional de Estadistica (E) 
Inst. National de Statistiques (B) 
Stat. Norway (N) 
Danmarks Statistik (DK) 
Stat. Sweden (S) 
Stat. Portugal (P) 
Central Statistical Office - CSO (UK) 
Istituto Naz. di Stat. (I) 
Centraal Bureau Voor de Stat. (NL) 
ETI (L) 
Central Statistical Office - CSO (IRL) 
Stat. Bundesamt {D)^ 
Gruppo Clas (I) 
Nat. Stat. Service of Greece (GR) 
AFI Alpenforschunginstitut 
Gugg & Partner 
Delvico Bates 
Ministry of Communications 
Nortra 
Arthur Andersen 
Office Natinal du Tourisme 
Grand Prix - 2e meeting of jury 
Grand Prix - 2e meeting of jury 
HTL Conseil 
Osterr. Stat. Zent. (A) 
Inst.Nat. de Stat. (B) 
Inst.Nat. de Stat. (D) 
InsLNat. de Stat. (DK) 
Min. Eq. Transp. & Tourism 
Inst.Nat. de Stat. (GR) Initial 
Budget 
(EÔUI 
40000 
40000 
120000 
40000 
120000 
70000 
40000 
70000 
40000 
70000 
120000 
120000 
70000 
20000 
70000 
120000 
259700 
70000 
27900 
205000 
499628 
7500 
9500 
66742 
7500 
22100 
12000 
146450 
130000 
130000 
230000 
130000 
230000 
130000 J 
Type 
of 
Action 
1 
i ; 
1; 
ii 
ii 
1 • 
1, 
1 ; 
1 ; 
1 , 
i; 
ij 
ij 
1 
1 
i 
i! 
ij 
1 
i| 
11i 
ii 
ij 
ii 
6i '«I 6 
6| 
1i 
1 
1 
1 : 
11 
i! 
Inst.Nat. de Stat. (IRL) j 130000 ! n 
InsLNat. de Stat. (IS) 
Inst.Nat, de Stat. (I) 
InsLNat. de Stat. (L) - ETI 
InsLNat. de Stat. (NL) 
InsLNat. de Stat. (UK) 
Swedish Tourist Authority 
InsLNat. de Stat. (P) 
InsLNat. de Stat. (N) 
Min. Comercio y Turismo - Secretaria General de Turismo (E) 
InsLNat. de Stat. (IRL) 
Gruppo Clas 
Conférence "Livre Vert" du 12/12 - SCIC 
CTA Economie & Export Analysis 
Gemeente Budel 
OING Lumières de la Méditerranée 
Kienbaum Dev. Services 
ASTER 
WTTC 
InsLNat. de Stat. (FIN) 
AENA - Aeropuerto de Palma de Mallorca 
Nord Info GmbH 
MEWCAT - Milos European Women's Cooperation for the Advancement in Tourism 
St Andrews Tourism Management Group 
The Tourism Company 
Mobility International 
University of Thessaly 
Azienda di Promozione Turistica del Mantovano 
ARGE Sanfte Mobilitat 
NIT 
Messe Berlin (ITB) 
BIT, Milano 
Watch TV 
Près. Consiqlio Minis. Turismo 
nstituto Municipal de Formacion y Empleo (Ayuntamiento de Granada) 
69 
8764 
127015 
631000 
7500 70000 
230000 ii 
1 , 
40000| 1 ! 
1300001 1 ; 
230000 
130000 
130000 
70000 
230000 
130000 
500240 
84478 
238792 1 ; 
1! 
1! 
ij 
il 
11 
1 i 
1 ; 
32; 
38630 ! 32] 
137670 ! 32; 
156486| 32| 
1893901 32; 
6310001 6 
1300001 
91380 
60700 
178300 
195757 
127800 
30000 
152971 
98552 
190000 
98749 
99840 
66121 
40000 
60000 
163159 
•000 ECU 
ECU 
ECU 
ECU 1 
6| 
32; 
6i 
61 
6i 
8i 
6! 
el 
•1 1 
1. 
5i i| 
il 
6i 
, 
1 
! ! 
i 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 41a 
APPENDIX II - CHECKLIST FOR INTERVIEWS OF KEY INFORMANTS *MW 
Final Report • V2.0 
it 
EVALUATION OF THE TOURISM ACTION PLAN PROGRAMME - CHECKLIST 
1 - Exposure to Tourism Action Plan 
PROMPTS: 
1.1- How familiar are you with the Tourism Action Plan programme? Please describe your exposure to 
Tourism Action Plan. 
1.2 - Please describe the objectives, the role of Tourism Action Plan as you perceive them? Did you 
perceive any significant change, evolution, trend? 
1.3 - If relevant, please describe your current involvement in area related to tourism policy. 
2 - Interface with Tourism Action Plan (Co-Ordination. Complementarity. Overlap. Etc) 
PROMPTS: 
2.1 - Please describe the objectives of your programme and compare them with Tourism Action Plan in 
terms of: 
- objectives, priorities 
- instruments (means, techniques used) 
- processes. 
2.2 - In what manner and to what extent does Tourism Action Plan complement, duplicate, overlap or 
work at cross-purposes with other programmes? 
2.3 - Please assess the quality of the co-ordination between Tourism Action Plan activities and the 
activities undertaken by your programme. 
3 - Assessment of the Rationale of Tourism Action Plan: Does the Programme Make Sense? 
PROMPTS: 
3.1 - Are the activities and outputs of Tourism Action Plan consistent with its mandate and realistically 
linked to the attainment of objectives? 
3.2- To what extent are the objectives and mandate of Tourism Action Plan relevant (in the past, 
present, future)? 
3.3 - What should Tourism Action Plan's role and activities look like in the future (exercise of wishful 
thinking)? 
4 - Assessment of Impacts and Effects: What Has Happened As A Result of the Programme? 
PROMPTS : 
4.1 - What impacts and effects, both intended and unintended, resulted from carrying out Tourism 
Action Plan? 
4.2 - If relevant: do the (unintended ) negative effects outweigh the benefits of Tourism Action Plan? 
?3 
4.3 - Give examples, illustrations of success stories, also failures. 
5 - Achievement of Programme Objectives: Has the Programme Achieved What Was Expected? 
PROMPTS : 
5.1 - In what manner and to what extent were the appropriate objectives achieved as a result of 
Tourism Action Plan? 
5.2 - What are the reasons for failures to meet objectives and can these be remedied? 
See above 4.3 - Give examples, illustrations of success stories, also failures. 
6 - Alternatives: Are There Better Ways of Achieving the Results/Obiectives? 
PROMPTS : 
6.1 - Are there most cost-effective alternative programmes which might equally achieve the objectives? 
6.2 - Are there more cost-effective ways of delivering the existing programme? 
7 - Lessons. Recommendations. Suggestions. Best Practices 
7.1 - Any key lessons/recommendations/suggestions to convey to Tourism Action Plan staff? 
7.2 - Any best practices from other programmes to convey to Tourism Action Plan staff? 
8 - Overall Assessment 
8.1 - Main strengths of the Tourism Action Plan? 
8.2 - Main weaknesses/shortcomings of the TAP? 
8.3 - What should be done differently? 
^ 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX III - EVALUATION FICHE FOR ASSESSMENT BY PW EXPERTS 4» 
Final Report • V2.0 
15 
Status of Assessment Price Waterhouse - Evaluation of the TOURISM ACTION PLAN 
Proforma for Assessment by Expert Consultant 
U Discussed with Project Official BEFORE completion 
LI Discussed with Project Offical AFTER completion 
U To be completed 
U Pending issue(s) 
Project Title 
Contractantfs) 
Contract Number 
Project Official 
Documentation Used for Evaluation 
U Call for Tender 
LI Proposal by Consultant 
LI Contract 
Li I Proposal Assessments by DGXXIII 
LI In-House Interim Evaluation 
LI In-House Final Evaluation 
LI Final Report 
LI Interim Report (only if final report not submitted) 
L) Other Evidence 
If other, please specify: 
7é 
1 - Quality of Goal-Setting 
Score Comments 
(1-5) 
1.1- Clarity of objectives 
in call for tender 
1.2 - Quality of 
goal-setting in proposal 
i 
1.3 - Degree of innovation 
in the European context 
1.4 - Is the project 
transferable? 
1.5- Overall quality of 
project design 
Subtotal | 
I I _i 
2 - Outputs of the Proiects - Incidence of Effects 
| | " " ' " i 
Score Comments j 
(1-5) j 
, _______—i 
I 
2.1 - Degree of achievement J 
of objectives in terms of 
quantity I 
^ ^ i 
i 
2.2 - Degree of achievement 
of objectives in terms of j 
quality j 
Subtotal 
2.3 - What if any are the X 
weaknesses of the project? ! 
1 
2.4 - What if any are the X j 
positive outcomes of the ! 
project? | 
77 
3 - Rnal Report/Deliverable & Follow Up 
Score 
(1-5) Comments 
3.1 - Overall quality of 
final report (presentation, 
format) 
3.2 - Overall quality of 
final report/deliverable 
(contents) 
3.3 - Assessment of final 
deliverable in terms of 
distribution/dissemination( 
ie is the final deliverable 
of immediate use?) 
Subtotal 
n 
4 - Compliance with Article 4 of the Council Decision (13 July 1fl921 
Score Comments 
(1-5) 
4.1 - Cost-effectiveness 
4.2 - Impact on the 
Community tourist 
industry 
4.3 - Facilitate 
development of SMEs 
4.4 - Improve quality of 
tourist services 
4.5 - Encourage 
competition within EU 
4.6 - Increase 
competitiveness of EC 
tourist services . 
j 4.7 - Conducive to 
preserving and protecting 
the environment 
4.8 - Conducive to 
preserving and protecting 
the cultural heritage 
i 
4.9 - Conducive to 
preserving and protecting 
integrity of local 
| populations 
i 
| 
4.10 - Conducive to 
improving the provision of 
information and to the 
protection of tourists 
Subtotal 
*T 
5 - Overall Assessment of the Project 
Score Comments 
(1-5) 
Overall Assessment of the 
Project 
6 - Other Comments 
7 - Pending Issues. Questions. Queries 
fo 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX IV - EVALUATION FICHE FOR ASSESSMENT BY CONTRACTORS 0 
Final Report - V2.0 
if 
Price Waterhouse - Evaluation of the TOURISM ACTION PLAN 
Proforma for Assessment by Project Contractors 
Thank you very much for agreeing to help us in this important evaluation commissioned by the 
European Commission (DGXXIII). Please note that individual responses will remain strictly 
confidential to Price Waterhouse and no information about your assessment of individual 
projects will be provided to the European Commission. We will aggregate and analyse the 
results prior to reporting to the European Commission. 
If you consider that a question does not apply to your project, please say so. 
This document contains two sections: Section A - Project Description and 
Section B - Assessment by Contractor. Section B is made of three subsections: Achievement of 
Objectives; Project Implementation; Lessons, Recommendations, Suggestions, Best Practice. 
A - PROJECT DESCRIPTION 
A1 - Project Title 
A2 - Year started: 
A3 - Project Description (full description, maximum 10 lines) 
A4 - Principle contractor 
names, not acronyms): If consortium, please name ajj participating organisations (give full 
A5 - If project co-financed, please name other bodies involved in co-financing (give full names, 
not acronyms): 
A6 • Please name other stakeholders and project partners (ie excluding TOURISM ACTION PLAN 
and Other CO-financing bodies) of the project - Stakeholders are groups and individuals that have an interest 
in the outcome of the project, such as: international agencies, national administrations, research institutes, consulting 
firms, project implementing agencies, andintended beneficiaries. 
u 
A7 - State of advancement: I—I Not started 
I I Abandoned 
I I Still ongoing but NOT delayed 
I I Still ongoing but delayed 
I I Completed and final report submitted 
I I Completed but no final report submitted 
1_J Other 
A8 - If project not started, abandoned or delayed, give reasons: 
A9 - If final report submitted, please give date of submission of the final report: 
MONTH: YEAR: 
A10 - If project completed but final report not submitted, give reason and expected date of 
submission: 
A11 - Type of Project: LJ Pilot Project 
I I Research Study 
I I Conference 
I I Publication 
U Other 
A12 - If other, please specify: 
A13 - Countries - Please give specific countries where the project is taking place : 
A14 - Please give other sources of funds (ie other than DGXXIII-TOURISM ACTION PLAN): 
A15 - COMMENTS - Please give any further comments on project description: 
1* 
B - ASSESSMENT BY CONTRACTOR 
B1 - Achievement of Objectives (including impact) 
B1.1 - If any, please specify target group(s)- Target Groups are the intended beneficiaries of the project, the 
groups that should benefit from it. If no target group(s), please explain why. 
B1.2 - Please specify the main initial objectives of the project, starting with the most important 
one: 
Objective 1 (most important): 
Objective 2: 
Objective 3: 
Other objectives, if any: 
B1.3 - Please rate the degree of attainment of these objectives - Tick only one box 
Attainment of 
Project Objectives 
Objective 1 (as 
defined above) 
Objective 2 (as 
defined above) 
Objective 3 (as 
defined above) 
Objective 4 (as 
defined above) 
Objective 5 (as 
defined above) 
Overall 
Assessment Not at all 
successful Not very 
successful Fairiy 
successful Very 
successful Do not 
know Not 
relevant 
I l 
I 
j 
i 
i 
i 
B1.4 - Main Indicators of Achievement 
Please give the main indicators of achievement specified for the project, which may be either 
quantitative (ie expressed in numbers) or qualitative (ie expressed in words): 
Indicator 1: 
Indicator 2: 
Indicator 3: 
Other indicators, if any: 
Vr 
B1.5 - Degree of Achievement of Performance Indicators 
Please indicate the extent to which the performance indicators have been attained. 
1 1 1 
! 
Indicator of Achievement Target(s) initially Actual outcome(s) | Reasons for differences from 
planned at completion j target 
i 
Indicator 1 (as defined | 
above) j 
i 
I 
| — 
Indicator 2 (as defined j 
above) 
l 
Indicator 3 (as defined ! 
above) 
i 
Other: j 
I I i 
Benefits and Negative Effects Arising from the Project 
B1.6 - Please give the main benefits arising from the project: 
Benefit 1 : 
/ 
Benefit 2: 
Benefit 3: 
Other benefits. If any: 
B1.7 - If any, please give the main negative effects arising from the project: 
Negative effect 1 : 
Negative effect 2: 
Negative effect 3: 
Other negative effects, if any: 
B1.8 - What would have happened in the absence of TOURISM ACTION PLAN funding? 
I I The project would NOT have taken place 
I I The project would have taken place but LATER 
I I The project would have taken place but AT A SMALLER SCALE 
I I Don't know/no opinion 
LI Other 
If other, please specify: 
tf 
B1.9 - COMMENTS - Please give any further comments on achievement of objectives: 
B2 - Project Implementation 
Changes in Project Design 
B2.1 - Were there significant changes in project design such as changes in scope, objectives, 
target groups, approach? YES NO 
B2.2 - If yes, please specify: 
B2.3 - Please give the reasons for these changes in project design? 
Delays 
B2.4 - Was the start of the project delayed? YES NO 
B2.5 - If yes: By how many months? MONTHS 
B2.6 - If yes: Reasons for these delays? 
B2.7 - Was the project completed on time? YES NO 
B2.8 - If no: By how many months was the project delayed? MONTHS 
B2.9 - If no: Reasons for these delays? 
Cost Overruns 
B2.10 - Was the project completed within the initial budget? YES NO 
B2.11 - If no: Give size of cost overrun (final budget divided by initial budget): 
ECU 
B2.12 - If no: Reasons for cost overruns? 
.4 
B2.13 - An Index for Assessing Project Implementation 
Please help us to assess the implementation of the project. Please tick one box only per row. 
Indicators 
A - Planning & Preparation of Project 
A1 - Clarity of objectives 
A2 - Quality of project design 
A3 - Effectiveness of the partner(s)' 
participation in preparation & planning 
B • Dissemination 
B1 - Follow up of project after 
completion 
B2 - Dissemination of main results 
C - Management by TOURISM ACTION 
PLAN staff 
C1 - Financial & administrative 
monitoring by TOURISM ACTION PLAN 
staff 
C2 - Overall efficiency of TOURISM 
ACTION PLAN staff 
C3 - Responsiveness of TOURISM 
ACTION PLAN staff 
D • Co-ordination 
D1 - Quality of dialogue between 
TOURISM ACTION PLAN staff and 
other partners 
D2 - Co-ordination with other EU 
departments and non EU agencies 
Your overall assessment of the project 
implementation Poor Very 
poor Average Good Very 
good 
i Don't 
know 
1 
! 
i 
i 
j 
1 
1 
j 
J 
j 
1 
1 
i 
1 
I 
i i 
i 
j 
i 
i I Not relevant 
Sv 
B2.14 - COMMENTS - Please give any additional comments on project implementation: 
B3 - LESSONS. RECOMMENDATIONS. SUGGESTIONS. BEST PRACTICE 
B3.1 - Any key lessons/recommendations/suggestions to convey to the TOURISM ACTION 
PLAN staff? 
B3.2 - Any best practice to convey to the TOURISM ACTION PLAN staff? 
J 
Have you any comments to make about this proforma? If yes, Price Waterhouse 
would be very grateful if you could indicate how to improve it: 
Completed by: 
Name: 
Position: 
Tel number: 
Fax Number: 
Date: 
Thank you very much for your co-operation 
Please fax the completed document to: 
Price Waterhouse 
Project TOURISM ACTION PLAN - EC SERVICES 
c/o Luc MOENS 
Fax: +44 171 939 3474 
Tel: +44 171 939 3331 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX V - CHECKLIST FOR CASE STUDIES 0 
Final Report - V2.0 
it 
CASE STUDIES 
ASSESSMENT BY KEY INFORMANTS 
NAME OF THE CASE STUDY: • 
ASSESSMENT OF PROJECT BY KEY INFORMANTS - CHECKLIST 
Foreword 
A very happy New Year and thank you for your co-operation. You will find below a list of 
prompts/questions for each issue we need to address to complete this case study. The objective of the 
interview we wish to set up with you is M to discuss in detail every item in this checklist. We wish to focus 
on the areas where your contribution is most valuable and relevant. 
If your organisation was the main contractor for this project, you will also receive from Price Waterhouse a 
short questionnaire designed to record descriptive information and to collect the contractor's views on 
the project implementation. Please return it completed as soon as possible as we have to report to 
the Commission by the end of January 1996. 
Introduction/Interface with the Case Study 
A. Involvement in the project: since/until when? Role? 
B. Exposure to the Tourism Action Plan: How familiar are you with the Tourism Action Plan 
programme? 
Preparation & Rationale 
1. Origin of the project: who initiated the project? Brief history/background. 
2. Rationale: principles underlying the project? Justification? Which problems is it addressing? 
Main relevant characteristics of the environment in which project is taking place? 
3. Describe preparation and planning of the project. 
4. Briefly describe how the consultant contracts have been awarded and the reasons for the 
selection. 
5. Summarise key dates and milestones (including future ones if project not completed), and main 
(realised or expected) outputs/events (reports, key meetings, seminars/workshops, other key 
events). 
Stakeholders & Key Informants 
6. Please name all important stakeholders and describe their role/contribution. Stakeholders are 
groups and individuals that have an interest in the outcome of the project such as: other EU 
and non-EU international agencies, national administrations, research institutes, consulting 
firms, project implementing agencies, and intended beneficiaries. 
Objectives 
7. If any, please specify target group(s)- Target Groups are the intended beneficiaries of the 
project, the groups that should benefit from it. If no target group(s), please explain why. 
8. Main initial objectives of the project, starting with the most important one: 
t\ù 
CASE STUDIES 
ASSESSMENT BY KEY INFORMANTS 
NAME OF THE CASE STUDY: • 
9. Objective 1 (most important): 
Objective 2: 
Objective 3: 
Other objectives, if any: 
Please rate the degree of attainment of these objectives - Tick only one box per row in the table 
below. 
Attainment of 
Project 
Objectives 
Objective 1 (as 
defined above) 
Objective 2 (as 
defined above) 
Objective 3 (as 
defined above) 
Objective 4 (as 
defined above) 
Objective 5 (as 
defined above) 
Overall 
Assessment Not at all 
successful Not very 
successful 
• Fairly 
successful Very 
successful Do not 
Know Not 
Relevant 
Main Indicators of Achievement 
10. Please give the main indicators of achievement specified for the project, which may be either 
quantitative (ie expressed in numbers) or qualitative (ie expressed in words): 
Indicator 1 : 
Indicator 2: 
Indicator 3: 
Other indicators, if any: 
CASE STUDIES 
ASSESSMENT BY KEY INFORMANTS 
NAME OF THE CASE STUDY: O 
11. Please indicate in the table below the extent to which the performance indicators defined above 
have been attained. 
Indicator of 
Achievement 
Indicator 1 (as 
defined above) 
Indicator 2 (as 
defined above) 
Indicator 3 (as 
defined above) 
Other: Target 
(initially planned) Actual 
(at completion) Reasons for differences 
from target 
Interface of Tourism Action Plan with other programmes/policies (Co-Ordination. Complementarity. Overlap. 
et£l 
12. In what manner and to what extent does Tourism Action Plan complement, duplicate, overlap or 
work at cross-purposes with other EU and non-EU programmes? 
13. Please assess the quality of the co-ordination between Tourism Action Plan activities and the 
activities undertaken by other EU and non-EU programmes. 
Impacts and Effects: What Has Happened As A Result ot the Programme? 
14. What positive impacts and effects, both intended and unintended, resulted from carrying out 
the project? 
15. What negative impacts and effects resulted from carrying out the project? 
Project Implementation 
Monitoring & Evaluation 
16. Describe procedures/arrangements to monitor the project implementation 
17. Describe procedures/arrangements to evaluate the project during and after implementation 
n 
CASE STUDIES 
ASSESSMENT BY KEY INFORMANTS 
NAME OF THE CASE STUDY: • 
Changes in Project Design 
18. Were there significant changes in project design? If yes, please specify and give the reasons 
for these changes in project design? 
Delays 
19. Was the start of the project delayed? 
If yes: By how many months? 
If yes: Reasons for these delays? 
20. Was the project completed on time? 
If no: By how many months was the project delayed? 
If no: Reasons for these delays? 
Cost Overruns 
21. Was the project completed within the initial budget? 
If no: Give size of cost overrun (final budget divided by initial budge) 
If no: Reasons for cost overruns? 
Dissemination & Follow Up 
22. Has the project results been disseminated? What was the follow up, and who did it? Has the 
project been replicated? 
23. (If relevant) For how long are the operational cost (partly) covered by Tourism Action Plan? 
What will happen next? 
Lessons. Recommendations. Suggestions. Best Practices 
24. What are the reasons for failures to meet objectives and canthese be remedied? 
25. Any key lessons/recommendations/suggestions for future projects? 
26. Which elements can be replicated, under which conditions? 
OVERALL ASSESSMENT 
27. Main strengths of the project? 
28. Main weaknesses/shortcomings of the project? 
29. Contribution/value added by Tourism Action Plan? 
30. What would have happened in the absence of the Tourism Action Plan funding? Would the 
project exist? If yes, would it be different? 
31. What would you do differently? 
31 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX VI - COUNCIL DECISION OF 13 JULY 1992 0 
Final Report - V2.0 
•ft 
No L 231726 Official Journal of the European Communities 13. 8. 92 
COUNCIL DECISION 
. of 13 July 1992 
on a Community action plan to assist tourism 
(92/421/EEC) 
THE COUNCIL OF THE EUROPEAN COMMUNITIES, 
Having regard to the Treaty establishing the European 
Economic Community, and in particular Article 235 
thereof Whereas, tourism can make an effective contribution to 
achieving economic and social cohesion in the Community 
and whereas it can promote in the Community a 
harmonious development of economic activity, continuous 
and balanced expansion, a higher standard of living and 
closer relations between the States which it links; 
Having regard to the proposal from the Commission ('), 
Having regard to the opinion of the European 
Parliament (2), . 
Having regard to the opinion of the Economic and Social 
Committee (3), Whereas the measures tô be implemented under the action 
plan must comply with certain criteria in particular the 
need to comply with the subsidiarity principle; 
Whereas tourism occupies- an important place in the 
economy of the Member States, with tourist activities. 
representing a large potential source of employment; 
Whereas tourism allows people of all kinds to gain a better 
knowledge of Europe's cultural roots and of the cultures 
and ways of life in the Member States, thus making a' 
contribution to the progress of the idea of 'European 
citizenship'; j 
Whereas the results of the European. Year of Tourism 
should be taken into account; Whereas tourism in the Community will have to show 
consideration for local populations and for the natural and 
cultural environment, in order to improve the quality of 
services offered; 
Whereas free competition should be preserved in the sector, 
both for the benefit of consumers, and in order to promote 
small and medium-sized enterprises (SMEs); 
Whereas, in view of the above, Community action 
regarding tourism should take the form of a strengthening 
of the' horizontal approach to tourism in Community and 
national policies, and of the implementation of specific 
measures, and whereas that apporach should also include 
coordination of the measures, undertaken by Commission 
departments which affect tourism; whereas certain 
Communie/ policies, in particular transport policy, have a 
major impact on tourism in the various regions of the 
Community; Whereas it is necessary to encourage not only better 
integration of tourism into the various Community policies 
but also close cooperation between all public and private 
bodies in the sector, including- représentâmes of tourist 
regions, and whereas the implementation at Community 
level of à number of specific measures, complementary to 
those taken at national level, is the best way of achieving 
such cooperation, while avoiding any distortion of 
competition which may be caused; 
Whereas the Community can contribute to improving the 
quality and competitiveness of the Community's tourism 
services on offer, by encouraging a joint apporach to the 
medium-term problems facing European tourism; by 
promoting the development of the tourist industry and thç 
diversification of tourist activity and the development of 
transnational measures, and by developing the promotion 
of European tourism on- the main ' markets of third 
countries; Whereas statistics on tourism, should be developed and 
forward analysis of new types of tourism carried out; 
Whereas a, plan of three years' duration is called for; 
(«) OJ No C 120, 12. 5. 1992. p. I J. 
(*} OJ NoC/57. 16. J. 1992, p, 2J5. 
(J) Oj.Nu C 49. 24. 2, 1992. (». 4J_ Whereas an amount of ECU 18 million is deemed necessary 
to implement (his-plan; . 
fr 
13. 8. 92 Official Journal of the.Europeah Conimunitics No L 231/27 
Whereas the amounts to be committed for thé financing of 
the plan will have to come within the Community financial 
framework in force; 
Whereas procedures should.be laid down for the exercise of 
the powers for implementing this plan conferred on the 
Commission pursuant to Decision 87/373/EEC ('); 
Whereas the Treaty does not provide for any powers for 
the adoption of this Decision other than those mentioned in 
Article 235, 
HAS DECIDED AS FOLLOWS: 
Article I 
A Community action plan to assist tourism shall be drawn 
up. The measures forming the subject of this plan are 
contained in the Annex. • -
i Article 2 
1. The duration of the action plan shall be three years 
from 1 January 1993. The Commission shall refer to the committee referred to in 
paragraph 2 and the Council those initiatives adopted in 
the framework of Community policies which haw a major 
effect on tourism. 
2. The Commission shall be assisted in implementing the 
action plan by a committee composed of representatives of 
the Member States and chaired by the reprcsentativeof the 
Commission. 
The representative of the Commission shall submit to the 
committee a draft of the measures to be taken. The 
committee shall deliver its opinion on the draft within a 
time limit which the chairman may lay down according to 
the urgency of the matter. The opinion shall be delivered 
by the majority laid down in Article 148 (2) of the Treaty 
. in the case of decisions which the Council is required to 
adopt on a proposal from the Commission. The votes of 
the representatives of the Member States within the 
committee shall be_weighted in the manner set out in that 
Article. The chairman lhall not vote. 
The Commission shall adopt measures which shall apply 
\ immediately. However, if these measures are not in 
accordance with the opinion of the committee, they shall be 
communicated by the Commission to the Council 
forthwith. In that event the Commission shall defer 
application of the measures which it has decided for a 
period of two months from the date of communication. 
2. The Community financial resource|_decmed necessary 
for its implementation amount to ECUM8ynilIion and shall 
fall within the Community financial framework in force. The Council, acting by a qualified majority, may take a 
different decision within the time limit referred to in the 
previous paragraph. 
3. The budget authority shall determine the appro­
priations available for each financial year, taking into 
account the principles of sound management referred to in 
Article 2 of the Financial Regulation applicable to the 
general budget of the European Communities. Article 4 
1. The measures must be consistent with (he principle of 
subsidiarity. 
Article J 
I. The Commission shall put the action plan into 
operation. In order to fulfil the objectives of the plan, it 
may undertake measures other than those set out in the 
\nncx, where, exceptionally, additional, action is required 
n order to carry out one of the measures in full. Such 
tdditional action shall be assessed in relation both to 
existing priorities and to available financial resources. The 
-ommission shall coordinate the action with the various 
Community policies, and through the various Dircctoratcs-
/cncral concerned, in accordance • with -current' 
roceduces. 
) OJ No I. 197. 18. 7, 1987, p. JJ. 2. A selection shall be made, for the different measures 
proposed, by reference to the following criteria: 
(a) the measures must be cost-effective and make a 
significant impact on the Community tourist industry; 
(b) they niust facilitate the development of the tourist 
industry with particular reference to small and 
medium-sized businesses; 
(c) they must help improve the quality of Community 
tourist services; . 
(d) "they must encourage competition within the 
Community and increase the competitiveness of 
'Community tourist services on the world market;. 
M> 
No L231/28 Official Journal of the European Communities 13. 8. 92 
(e) they must be conducive to preserving and protection the 
quality of the natural environment, the cultural heritage 
and the integrity of local populations; 
(f) they must be conducive to improving the provision of 
information and services and to the protection ot 
tourists. 
3. The measures shall be implemented through 
coordination with the national authorities and, if 
necessary, with the regional or local authorities as well, so 
as to take account of the importance of tourism for 
regional development. Article 6 
The Commission shall regularly evaluate the results of the 
action plan. This evaluation will include wherever possible 
measurable outputs of the plan and be in accordance with 
the criteria in- Article.4. The committee will be informed by 
the Commission of the latter's evaluation of the plan, and 
of the results thereof. No later than 30 June 1995, the 
Commission will submit a report on this evaluation to the 
European Parliament and the Council. On the basis of that 
report, the Council shall decide, in accordance with the 
provisions of the Treaty, whether or not to extend the plan 
for a further period. 
Article S Done at Brussels, 13 July 1992. 
Every year from.the date of adoption of the action plan, 
the Commission, in a report to the European Parliament 
and the Council, shall evaluate the Community's activities 
which affect tourism. For the Council 
The President 
J. CUMMER 
f-r* 
13. 8. 92 Official Journal of the European Communities No L 231/29 
ANNEX 
I. COMMUNITY MEASURES TO ASSIST TOURISM 
V.. Improving knowledge of the tourist industry and ensuring greater consistency of Community 
measures 
Community action 'is intended to improve the consistency of the measures taken to assist tourism by 
increasing knowledge of its characteristics, components and development. 
This will be carried out by means of the following measures: 
(a) development of Community statistics on tourism; 
(b) detailed studies aimed at improving knowledge of tourism as an activity, assessment of the impact 
of current Community.policies to assist tourism, forward analysis of new types of tourism, and the 
preparation of strategies adapted to keep pace with demand-, 
(c) consultation of tourism professionals within the Communicy. 
2. Staggering of holidays 
Community action is designed to promote a better seasonal distribution of tourism. 
This will be carried out by means of the following measures: -
(a) support for the setting-up of an international framework Jwhose purpose would be to exchange 
information and monitor the activities of governments and the tourist industry; 
(b) support for measures aimed at coordinating actions and strategies to encourage the use of tourism 
infrastructure and facilities outside the peak season. 
3. Transnational measures 
Community action is designed to promote transnational tourist development initiatives covering many 
different specialist sectors of the industry. 
This will be carried out by means of the following measures: 
(a) support for cooperation between border regions; 
(b) support for transnational initiatives contributing to the improvement of tourist information, in 
particular those using new technology; 
(c) development of tourist cooperation wich Central and Eastern Europe and the Maghreb through the 
transfer of know-how on training and the implementation of strategies for promotion, as well as on 
marketing and the crearion of small and medium-Sized tourist enterprises; 
(d) support for tourist and technical cooperation in the context of partnerships between towns; 
(e) support for. pilot projects aimed ar cooperation between the public and private sectors for the 
development of traditional tourist regions in decline as well as less developed rural regions. 
4. Tourists as consumers 
Community action aims to support initiatives which improve the information of tourists and their 
protection, in areas such is existing classification systems, ' signposting symbols, time-share 
arrangements, over-booking and procedures for redress. 
5. Cultural tourism , 
Community action is designed both to highlight theimportancc of the cultural heritage for tourism and 
to promote a greater knowledge of the cultures, traditions and ways of life of Europeans, 
ff 
No L 231/30 Official Journal of the European Communities 13.8.92 
This will be carried out by means of the following measures: 
(a) support for initiatives to develop new European cultural tourism routes, in cooperation with the -
Member States, regions arid local authorities concerned, and to disseminate information on these 
routes by means of brochures and publications; 
(b) support for the exchange of experience in the field of visitor management techniques; 
(c) promotion and assistance in the use of European networks enabling tourist operators and cultural 
institutions to exchange experience, -especially as regards highlighting the value of cultural 
heritage. 
6. Tourism and the environment 
The aim of Community action in the area of the interaction between tourism and the environment is to 
ensure that the environment is more fully taken into account. 
This will be carried out by means of the following measures: 
(a) support for iniriatives aimed at informing arid increasing the awareness of tourists and suppliers of 
services about the interaction between tourism and the environment and in particular through the 
creation of a European environmental prize;' 
(b) support for innovative pilot projects to reconcile tourism and nature protection at local or regional 
level, in particular coastal and mountain areas, nature parks and reserves, e.g. by measures for the 
guidance of visitors; 
(c) support for the development of networks involving transnational exchanges of experience, 
including experience of environmental problems and their possible solution through visitor 
management at sites; 
(d) support for initiatives'encouraging forms of environment-friendly tourism. 
I 
7. Rural tourism 
Community action in this field is designed to develop tourist activities in a rural environment, notably 
farm tourism, small family-run hotels or facilities set up by associations or local authorities. 
This will be carried out by means of the following measures: 
(a) support for partnership initiatives between operators at local, regional, national or European level, 
to facilitate exchanges of experience and the transfer of good practice through the organization of 
visits, seminars, exchanges of experts and the development of transnational pilot schemes, in 
particular in the field of vocational training; 
(b) improved information for rural operators and better access for them to the various Community aid 
schemes available for rural tourism, in-particular through the publication of documents for mass 
circulation and the publication of an operators' manual-, 
(c) encouragement for. improving the quality of rural tourism supply and support for measures to 
facilitate access to tourism in a rural environment. 
8. Social tourism 
Community activity in this field seeks to facilitate access to tourism hy groups of people who, for 
various reasons, but especially for social or health reasons, have difficulty in taking holidays. 
This will be carried out by means of the following measures: 
(a) shared information at Community level between public and'private sector partners concerning the 
various methods used in the Member States to encourage holiday-taking by certain categories of 
tourists; 
(b) support for the coordination between Member.States of measures aimed at eliminating barriers to 
the development of tourism for the disabled, and for the exchange"of information in (his field. 
9. Youth tourism 
Community action in this field is, through support for existing Community policies, aimed both at 
promoting young people's knowledge of cultures and lifestyles'in the various Member States and at 
making it easier for young people'to take holidays. ." 
ft 
13.8.92, .Official Journal of the European Communities •• No L 231/31 
This will be carried out by means of the following measures: 
(a) a feasibility study into establishing links between 'y°-tn cards'; 
(b) support for research into the need to create a network of exchanges with regard to 'European 
classes* (school travel for pupils from several Member States). 
10. Training 
Community action in this field is aimed, through support (or existing Community policies, at making 
the tourist industry in the Community more competitive through support for increased professionalism 
in Community tourism. 
This will be carried out by means of the following measures: 
(a) dissemination of information among young people on tourist resources and profession; 
(b) support for ongoing measures to draw up professional profiles for the industry and improvement of 
mutual information on the qualifications attained in the various Member States; 
(c) encouragement of the participation of tourist businesses and their employees in existing 
Community training programmes and measures; 
(d) support for transnational cooperation projects, between universities, tourism schools, tourism 
professionals, or the authorities concerned, especially for training in the fields of rural, cultural and 
environmental tourism; 
(e) support for networks aimed at improving the quality of vocational training so as to raise the 
quality of tourism services. 
11. Promotion in third countries 
Community action in this field is directed at making Europe a more attractive destination for tourists 
from distant countries. 
This will be carried out by means of measures confined to pilot projects to promote Europe as a tourist 
destination on the markets of distant countries, particularly North America and Japan, whose growth 
is likely to have an impact on tourism within the Community. 
I 
II. TIMETABLE OF PRIORITIES 
When implementing measures in accordance with thé procedure laid down in Article 3, priority will be 
given for 1993.to the following measures. 
These priorities may be modified for the financial years 1994/95 according ro the procedure referred ro in 
Article 3 (2). 
Priority measures for 1993: 
I. Improving knowledge of the tourist industry and ensuring greater consistency of Community 
measures: 
(a) development of Community statistics on tourism; 
(b) detailed studies aimed at improving knowledge of tourisme as an activity, assessment of the impact 
of current Community policies to assist tourism, forward analysis of new' types of tourism and the 
preparation of strategics adapted to keep pace with demand; 
(c) consultation of tourism pofcssionals within the Community. 
2. Staggering of holidays: 
• i-
(a) support for the setting-up of an.international framework whose prupose would be to exchange 
information and monitor the activities of governments and the. tourist industry. 
Ac® 
No L 231/32 Official journal of the European Communities 13:8.92 
'3'. Transnational measures: 
(a) support of cooperation between border regions: 
(b) support for transnational initiatives contributing to the.improvement of tourist information, in 
particular those using new technology; •',..'-
(c) development of tourist cooperation with Central and Eastern Europe and the Maghreb through the 
transfer of know-how on training and the implementation of strategies for promotion, as well as on 
marketing and the creation of small and medium-sized tourist businesses. 
5. Cultural tourism: 
(a) support for initiatives to develop new European cultural tourism routes, in cooperation with the 
Member States, regions and local authorities concerned, and to disseminate information on these 
routes by means of brochures and publications; 
(b) support for the exchange of experience in the field of visitor management techniques-, 
6. Tourism and the environment: 
(a) support for initiatives aimed at informing and increasing the awareness of tourists and suppliers of 
services about the interaction between tourism and the environment and in particular through the 
creation of a European environmental prize; 
(b) support for innovative pilot projects to reconcile tourism and nature protection at local or regional 
level, in particular coastal and mountain areas, nature parks and reserves, e.g. by measures for the 
guidance of visitors-, 
(c) support for the development of networks involving transnational exchanges of experience, 
including experience of environmental problems and their possible solution through visitor 
management at sites; 
(d) support for initiatives encouraging forms of environment-friendly tourism. 
7. Rural tourism: 
(b) improved information for rural operators and better access for them to the various Community aid 
schemes available for rural tourism, in particular through the publication of documents for mass 
circulation and the publication of an operators's manual; 
/ 
(c) encouragement for improving the quality of rural tourism supply and support for measures to 
• facilitate access to tourism in a rural environment. 
8. Social tourism: 
(b) support for the coordination between Member States of measures aimed at eliminating barriers to 
the development of tourism for the disabled, and for the exchange of information in this field. 
10. Training: 
(b) support for ongoing measures to draw up professional profiles for the industry and improvment of 
mutual information on the qualifications attained in thevarious Member States; 
(c) encouragement of the panicipation of tourist businesses and their employees in existing 
Community training programmes and measures; 
(d) support for transnational cooperation projects between universities, tourism schools, tourism, 
professionals, or the authorities concerned, especially for training in the fields of rural, cultural and 
environmental tourism. ' i • 
1 I. Promotion in third countries: 
Pilot projects to promote Europe as a tourist destination on the markets of distant countries, 
particularly North America and Japan, whose growth is likely to have an impact on tourisrk within the 
Community. 
^1 
EVALUATION OF THE TOURISM ACTION PLAN TO ASSIST TOURISM 
APPENDIX VII - LIST OF CONTACTS • 
Final Report - V2.0 
-M 
APPENDIX VII EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 
ILIST OF CONTACTS (excluding DG XXIII) 
No Nam» ;; piyantwdon 
1 Daniela Hesse-Wagner ETOA 
2 Robert Hollier ETC 
3 Lisa Davies AIT/FIA 
4 De Blust ECTAA 
5 E Giesen Deutscher Stadte und Gemeintebund (D) 
6 W Burnett EUTO 
7 G Llpman WTTC 
8 M Sequaris HOTREC 
9 F H Aldous ECATRA 
10 Mr Smithies IATA 
11 LLickorish ETAG 
12 Lepage UFTAA 
13 MrFreitag European Travel Monitor (Munich, D) 
14 RZimmer Luxembourg 
15 Bent PilstrSm Finland 
16 JL Deroide France 
17 E Hadzinikolaou Greek National Tourism Organisation 
18 Claude Pirard Belgium 
19 Dr.ssa. Cesarina Mislani Dipartimento del Turismo (1) 
20 Keith Gibbins Department of National Heritage (UK) 
21 Teresa Castillo Minlsterio de Comercio y Turismo (E) 
22 Shane O'Neill Department of Trade & Tourism (IRL) 
23 Paul Bates Department of Trade & Tourism (IRL) 
24 Ciaran Tulte Borde Fallte (IRL) 
25 JP Bastos Salazar Lelte Directorate General for Tourism (P) 
26 Mr Schneider Bundesmlnlsterium fur Wirtschaft (D) 
27 L Harrison European Parliament 
28 E McMillan-Scott European Parliament 
29 P Comelissen European Parliament 
30 Mr Hansen Committee of the Regions 
31 Giacomo Regaldo Economic & Social Committee 
32 Kirchberger DG XXII 
33 Van Hasselt Air Transport Policy - DG VII 
34 E Power DG XVI « Regional Policies 
35 D Givord Rural Development - DG VI 
36 Comaert DGXI 
37 M Lepelletier DG VII 
38 BWeherns DGV 
39 Manuel Ruiz Sanz DGV 
40 Xavier Coyer DGV 
41 Danae Penn DGVII 
42 Pyrhus Mercouris DG X 
43 Mr Enthoven DGXl 
44 T O'Dwyer DGXX1I 
45 G Barrett DGVIII 
46 E Pongas Eurostat 
47 Professor V Middleton 
48 E Pad World Trade Organisation (WTO) 
49 Mr Dupeyras OECD 
50 Prof John O'Hagan Trinity College (Dublin. IRL) 
51 George Moustakas International Interactive Multimedia 
52 Palle Damkjaer Hjoerring Business College (DK) 
53 Rene Ladiges Hjoerring Business College (DK) 
54 Elsisabeth de Bodinat Agence Vitesse (Paris. F) 
55 Christine Bussière Agence Vitesse (Paris. F) 
56 Yves Comu HTL - Bossard Sociologie (Paris. F) 
57 Sylvie Blangy Expert (Montpellier. F) 
58 Paolo Bonglni Regione Toscana (Florence, I) 
59 Gerry Carver L&R Leisure (Haywards Heath, UK) 
60 A de Varax Office du Tourisme (Lyon, F) 
61 Elizabeth Jeffries Greater Manchester (UK) 
62 Hans Domenlcus Amsterdam Tourist Office (Amsterdam, NL) 
63 Kal Gelger IfB (Konstanz. D) 
64 Jan Kobemuss Institute fur Freizeit (Cologne. D) 
65 Falco de Clerck Institute for Service Management (Leeuwarden. NL) 
66 Andrew Lennox Central College of Commerce (Glasgow, UK) 
67 Carlos Freite Arthur Andersen (Lisbon. P) 
68 Ana Alonso DeMco Bates (Madrid. E) 
I 69 lEulogio Bordas |THR (Barcelona, E) 
AD _? 
EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX VIII - ASSESSMENT BY KEY INFORMANTS 0 
In this Appendix, we give a summary of the assessment made by the key informants (professional 
associations representing industry interests, representatives of the Member States, independent 
experts, Commission officials from other Directorates General). The views expressed are not necessarily 
shared by Price Waterhouse. 
Exposure to the Plan 
The vast majority of interviewees are familiar with the Plan, although some of them consider their 
knowledge of the plan stems from extensive contacts and length of time within the industry, rather than 
from the Plan's contact with the tourism organisation. Whilst many interviewees have only a more 
general understanding of the Plan, certain interviewees feel they have more of a knowledge of 
individual projects rather than an understanding of the Plan's strategy itself. 
Many interviewees gained familiarity with the Plan as a result of attending Management or Consultative 
Committees. The degree of familiarity with the Plan by officials from other Directorates General appear 
to be the lowest. 
An important feature is the background of the interviewees, especially which part of the travel and 
tourism industry they represent. There is a strong tendency for the "major players" in the industry such 
as the organisations representing the European travel agents and tour operators to consider that the 
Plan focuses mainly on peripheral tourism issues (green / social) and not on the key mainstream 
issues such as transport links and infrastructure. 
On the other hand, organisations such as those representing tourist offices in local communities 
consider the Plan only consults major forces in the industry and does not seek or take account of the 
views of other important but less powerful representatives. 
Interface with the Plan 
The interviewees have highlighted a number of organisations, particularly at the "global" level working 
towards the same broad objectives as the Plan: creating jobs by stimulating tourism and developing 
tourism with due regard for the environment. 
Whilst the Plan consults regularly with these organisations through attendance at meetings, advisory 
committees etc, it is felt that there is a need for the Plan to ensure greater coordination with the 
strategies of these other organisations. In particular, difficulties were expressed vis-à-vis the ability to 
co-ordinate what member states are doing with what the EU is doing. 
One interviewee felt that the Plan was a "small scale" model of what an overall strategic programme of 
Travel and Tourism in Europe should be aiming to achieve. 
Another common theme was that the Plan required much greater coordination and integration with the 
infrastructure projects handled by other DGs in the Commission eg air traffic control systems, transport 
measures for vehicles etc. 
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Rationale for the Plan 
10 The majority of interviewees expressed a view on whether the Plan made sense. Whilst these 
interviewees generally felt that the overall framework was commendable and "going in the right 
direction", they considered the actual outputs and activities were too fragmented and that the individual 
projects were on too small a scale. 
11 There is a general view that undertaking these small projects spread over a number of different tourism 
aspects has made it difficult to achieve the Plan's objectives. 
12 A number of interviewees to date consider the activities have focused on peripheral issues eg cultural 
and social tourism rather than on the mainstream tourism industry which accounts "for about 80% of all 
tourism activity". Some also felt that the Plan had concentrated too much on theoretical issues and 
research studies. 
13 Even more importantly, many considered that the results of these studies had not been made available 
to a wide enough audience and in particular to those bodies and organisations that could make best 
use of them. 
14 One interviewee felt there was too much emphasis on supporting the public sector's role in tourism 
and that there were insufficient projects related to the private sector's role. 
/ 
15 There is a general view that one of Plan's most valuable roles has been to act as a focal point for 
tourism within the EU and to get the many different stakeholders within the industry together and 
thinking about the same issues. To some extent, the Plan has acted as a catalyst for future action. 
16 Generally, interviewees think that the following factors have contributed to "the small and fragmented 
project" approach: 
a the need to satisfy a very broad framework of objectives ("a patchwork") 
b the tendency to attempt to meet the needs of every lobby with an interest in tourism which has 
led to funding fragmented, small projects on a number of areas 
c inadequate funding given the ambitious objectives of the Plan 
d inadequate staffing of the Tourism Unit (both in terms of number and expertise) 
e the lack of top level policy commitment and an insufficient authority vested in DG XXIII to 
enable it to fulfill adequately its coordination role with other EU mainstream policy areas such as 
Agriculture (DG VI) Regional Policy (DG XVI). 
17 These factors have meant that, to date, the Plan has been unable to play a significant role in 
maximising tourism's potential contribution to economic growth and job creation. 
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Assessment of Impacts and Effects 
18 Whilst a majority of interviewees consider that the net effects of the Plan are positive, several of them 
take the view that the negative effects have outweighed the positive effects. 
19 It is generally felt that the overall impact of the Plan on the competitiveness of the EU tourism industry 
has been very limited. 
20 The Plan has had the following positive impacts: 
a brought Member States together for useful discussions on Tourism (catalyst role) 
b increased the awareness of particular key issues amongst Member States, for example the 
environmental aspects 
c enhanced cooperation on Tourism issues amongst Member States (eg through the consultation 
process of the Green Paper) 
d activated several sectoral/regional projects in Europe. 
21 The general opinion is that DG XXIII has done as well as it could have done, given the very broad 
framework for Plan and the constraints on funding. 
22 There is however a minority view that the implementation of the plan has been a "lost opportunity" and 
that the Unit has been ineffective. One reason sometimes given is the lack of tourism experience of 
most staff members. 
23 Travel agents and tour operators generally consider that the Plan has provided few benefits and has 
had little impact on the tourism industry. This sector and the industry generally feel they should have 
been consulted much more on the strategy at the outset. They generally felt that the Plan should have 
concentrated on the mainstream areas of tourism; that there should have been more effective 
coordination internally across the EU directorates responsible for Transport policy etc. as well as those 
responsible for the Structural Funds. There should also have been more coordination between other 
external organisations, especially those responsible for environmental issues. 
24 More emphasis should be placed on the great potential which the Tourism industry has for promoting 
sustainable development, and improving and maintaining the environment. 
25 Most representatives of the Member States contacted think that they need to be involved much more 
directly in the formulation of tourism policy and programmes, so that they take "ownership" of the 
programme and subsequently work actively together to implement it. The Plan has been regarded 
much more as the Commission's plan rather than that of the Member States'. 
26 There is a feeling that the Plan is "caught between two stools", ie in meeting the subsidiarity principle, 
yet still being expected to deal with core issues: if the Plan adheres to subsidiarity, then it may only 
add value in areas not seen as core such as social and green tourism. 
27 There is a view that many of the Plan's initiatives are related to local authority activities and not so much 
to the private sector. 
28 There is no unanimity on the effectiveness of the implementation of the Plan by the Tourism Unit. 
Whilst some interviewees feel that DG XXIII have done as well as they could "given the broad 
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framework and the constraints or funding", others take the view that the Commission has not been 
effective. The latter group gives evidence such as: cancelation of Conference on Quality of Tourism, 
lack of expertise in tourism, very long and bureaucratic procedures, delays in payment, lack of 
responsiveness of DG XXIII staff, lack of transparency in the selection of projects, poor execution of 
the budget (eg in 1994). 
29 It is also clear from our interviews that the misallocations of funds have given the Plan a "bad name": 
the credibility of the Tourism Unit and of a possible EU tourism policy has been seriously tarnished. It 
has also to some extent created the some of the administrative difficulties and weaknesses referred to 
above. 
Relative Successes and Failures at Project Level 
30 Interviewees cited the following as "successes" at project and study level: 
a Cultural itineraries, such as "Routes to the Roots" and "Art Cities in Europe" 
b Baltic Sea Region Cultural Project 
c A number of projects in the area of Tourism & the Environment (eg Prize) 
I d Certain projects in the area of information technology 
e Projects developed in Greece to develop training modules on training, management and 
technical skills 
f Senior citizens' and youth tourism; both were seen to be examples of projects which were 
expanding tourism in culturally and environmentally sensitive ways 
31 The Directive of Community Statistics and certain conferences organised by the Tourism Unit are other 
activities which appear to have been appreciated. 
32 Interviewees cited the following as relative "failures" at project and study level: 
a The study on "overbooking in hotels etc" was cited as unnecessary since it was looking at an 
issue already being resolved by the industry itself 
b The promotion in the USA, "a monumental worry", a "complete waste of money" 
c The failure of the promotion in Japan (1995 call for tender). 
Role and Activities in the Future 
33 For the future, a number of common themes emerged, although there is no unanimity. Among the 
representatives of the Member States at the Management Committee, examples of common themes 
include: 
a more and better coordination and dialogue (partnership) with: 
(a) the EU directorates responsible for the relevant mainstream programmes such as 
Transport, Regional Policy, issues of Taxation and Single Currency (including a better 
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use of the existing EU instruments) 
(b) the national tourist strategies and plans 
(c) regional and local authorities, Chambers of Commerce and other industry stakeholders 
b formally recognise Tourism's potential in the areas of economic development and generating 
employment opportunities 
c concentrate on promoting "Europe" to third party countries such as Japan and the Far East -
with individual EU countries left to promote themselves at international, national, regional and 
local level 
d need for planning a Tourism strategy which will have the greatest impact on economic growth 
and job creation within the EU, and for supporting projects which meet these objectives 
e greater involvement of the private sector in both the formation and implementation of policy 
f need to rethink the co-operation with third countries in order to make it consistent with the 
objectives of tourism policy 
g need to publicise the results and the outcomes of seminars, projects etc. I 
Summary of Findings 
34 We now summarise the findings from our interviews with key informants. Note that these are not 
necessarily the views of Price Waterhouse. 
35 The Plan has given "Tourism" more recognition within the EU. It has brought interested parties and 
stakeholders together to discuss common issues. 
36 But the Plan's framework covers too many objectives. Some of these objectives are on fringe or 
peripheral issues. Consequently, the plan did not include all the mainstream issues, especially 
regarding infrastructure aspects. 
37 It is felt by many key informants inten/iewed that funding and staffing of the Tourism Unit have not been 
adequate and these are seen as a key factors in limiting the programme's impact. 
38 There is a need for greater consultation of all key parties at the strategy formulation stage. This needs 
to include both the public and private sectors. Both Member States and industry representatives 
consider they were not actively involved in deciding on the Plan's strategy. 
39 There needs to be greater coordination on key issues (such as competitiveness) both internally within 
the Commission and with external bodies to ensure compatibility of policies, especially on transport 
and environmental issues. 
40 Need to be clear what the "high level" key objectives are and ensure that projects are assessed against 
these "key criteria" eg from which areas of the world is the EU trying to attract tourists to come to 
Europe? Which are the target markets? 
41 This leads on to thinking about what needs to be developed eg. high standards and common 
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classification of these standards for hotels etc across Member States. This is also seen to link with the 
need to develop educational programmes on tourism in colleges etc in the different Member States as 
well as to widen the use and capability of information technology for tourism on a pan - European 
basis. 
Final Report • V2.0 
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ISSN 0254-1475 
COM(96) 166 final 
DOCUMENTS 
EN 16 
Catalogue number : CB-CO-96-209-EN-C 
ISBN 92-78-03582-3 
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