Report on the Evaluation of the Community Action Plan to Assist Tourism 1993-95 - Council Decision 92/421 EEC
Date: 1996-04-30
Institutions: European Commission
Subjects: EU policy, action programme, project evaluation, tourism

COMMISSION  OF THE  EUROPEAN  COMMUNITIES 

Tir 

& 

<r 

-6-

Brussels,  30.04.1996 
COM(96)  166  final 

R E P O RT  ON T HE E V A L U A T I ON  OF T HE 
C O M M U N I TY  A C T I ON  P L AN  TO A S S I ST  T O U R I SM  1993-95 

C O U N C IL  D E C I S I ON  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. 

6. 

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. 

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) 
ii) 
iii) 
iv) 
v) 
vi) 

fragmented  and incoherent Measures (set out in the Annex of the Plan); 
confusion  between ends (or objectives)  and means (the measures); 
lack of clarity on how some of the actions would contribute to wider  objectives; 
incomplete or overlapping measures; 
over ambition given the available resources, 
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 

T HE  ROLE  AND  " M A R K ET  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: 

The quality of projects was low in  1993 but improved  significantly  in 1994; 

i) 
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, 
SMEs were not well enough considered in some actions, such as technology. 

x) 

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. 

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. 

10 

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. 

V II  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: 

the need for greater partnership and meetings based on specific issues; 
dissemination  of results via the Committees in existence; 
identification  of needs by independent experts; 
the greater use of performance  indicators; 
greater autonomy in certain operational areas; 
the annual cycle of the Plan; 

i) 
ii) 
iii) 
iv) 
v) 
vi) 
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 
industry.  The  Commission  also  organised  separate  meetings  with 
of  the  tourism 
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 

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: 

15 

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 

1993 

1994 

1995 

Total 

%of 

Av. Cost 

Measure 

Number 

ECU (000) 

Number 

ECU (000) 

Number 

ECU (000) 

Number 

ECU (000) 

Budget 

Of Action 

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 

2 

4 

5 

11 

0 

6 

9 

3 

18 

0 

399 

302 

188 

889 

0 

458 

1448 

302 

2208 

0 

1 

2 

3 

6 

2 

0 

1 

2 

3 

1 

249 

726 

211 

1186 

80 

0 

114 

61 

175 

161 

5. Cultural  Tourism 

18 

1262 

12 

1245 

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 

1 

0 

1 

1 

3 

1 

2 

1 

3 

382 

0 

382 

120 

175 

10 

17 

1 

18 

1 

0 

2 

236 

50 

286 

80 

0 

218 

197 

10 

1259 

1000 

25 

1 

2 

30 

30 

40 

4 

5 

49 

0 

0 

0 

6 

6 

0 

1 

4656 

266 

312 

5234 

0 

0 

0 

822 

822 

0 

66 

5 

9 

14 

203 

1829 

2032 

0 

2 

0 

0 

1 

2 

0 

70 

0 

0 

500 

12 

43 

10 

13 

66 

5304 

1294 

711 

7309 

26.9% 

6.6% 

3.6% 

37.0% 

123 

129 
55 

111 

2 

80 

0.4% 

40 

6 

10 

11 

27 

1 

458 

1562 

1185 

2.3% 

7.9% 

6.0% 

3205 

16.2% 

76 

156 

108 

119 

161 

0.8% 

161 

31 

2573 

13.0% 

83 

23 

10 

33 

2 

5 

3 

821 

1879 

2700 

4.2% 

9.5% 

13.7% 

36 

188 

82 

200 

1.0% 

100 

245 

1.2% 

228 

1.2% 

49 

76 

12 

1456 

7.4% 

121 

3 

7 

1530 

7.7% 

510 

67 

0.3% 

10 

Total All  Measures 

59 

6268 

58 

4750 

75 

8736 

192 

19754 

100.0% 

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 

1993 
Number 

ECU (000) 

1994 
Number 

ECU (000) 

1995 
Number 

ECU (000) 

Total 
Number 

ECU (000) 

% 

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 

2 
1 
4 
2 
9 

1382 
200 
201 
399 
2182 

1 

110 

0 
0 
0 

0 

0 
0 
0 

0 

0 
0 
0 

0 

0 
0 
0 

0 

0 
2 
2 
1 
5 

2 

0 
17 
1 
18 

1 
0 
0 

1 

0 
726 
329 
249 
1304 

80 

0 
236 
43 
279 

15 
0 
0 

15 

2 
2 
0 
0 
4 

1 

40 
0 
1 

41 

4 
2 
3 

9 

646 
196 
0 
0 
842 

4 
5 
6 
3 
18 

2028 
1122 
530 
648 
4328 

10.3% 
5.7% 
2.7% 
3.3% 
21.9% 

84 

4 

274 

1.4% 

4656 
0 
60 

4716 

57 
70 
75 

202 

40 
17 
2 
59 

5 
2 
3 

10 

4656 
236 
103 

4995 

23.6% 
1.2% 
0.5% 

25.3% 

72 
70 
75 

217 

0.4% 
0.4% 
0.4% 

1.1% 

Sub-total:  100% Funded Actions 

10 

2292 

26 

7678 

55 

5844 

91 

9814 

49.7% 

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 

35 
0 
35 

7 
1 
5 
1 
0 
14 

3173 
0 
3173 

684 
23 
85 
11 
0 
803 

23 
2 
25 

2 
0 
3 
2 
0 
7 

2618 
61 
2679 

65 
0 
248 
80 
0 
393 

16 
0 
16 

0 
0 
1 
0 
3 
4 

2658 
0 
2658 

0 
0 
28 
0 
206 
234 

74 
2 
76 

9 
1 
9 
3 
3 
25 

8449 
61 
8510 

42.8% 
0.3% 
43.1% 

749 
23 
361 
91 
206 
1430 

3.8% 
0.1% 
1.8% 
0.5% 
1.0% 
7.2% 

Sub-total: Joint financed actions 

49 

3976 

32 

3072 

20 

2892 

101 

9940 

50.3% 

Total AH  Mechanisms 

59 

6268 

58 

4750 

75 

8736 

192 

19754 

100.0% 

ANNEX 2C 

No. of Commitments  by 

1993 

1994 

1995 

Total 

Recipient  Organisation 

Number 

ECU (000) 

Number 

ECU (000) 

Number 

ECU (000) 

Number 

ECU (000) 

Public  Sector 

Management Committee 

National Statistical Organisation 

National Tourist  Organisation 

Regional / Local Authority 

Sub total 

NGOs &  Associations 

NGOs 

European Associations 

National Associations 
Sub total 

2 

0 

0 

12 

14 

2 

9 

5 
16 

198 

0 

0 

893 

1091 

66 

445 

345 
856 

11 

0 

8 

2 

21 

2 

6 

3 
11 

195 

0 

208 

281 

684 

145 

470 

246 
861 

University / Research  Institutes 

4 

320 

5 

648 

19 

% 

5.3% 

16.0% 

2.1% 

9.4% 

32.7% 

1.1% 

8.5% 

3.9% 
13.5% 

648 

3160 

209 

675 

4692 

0 

769 

189 
958 

18 

31 

12 

19 

80 

4 

17 

9 
30 

1041 

3160 

417 

1849 

6467 

211 

1684 

780 
2675 

153 

10 

1121 

5.7% 

5 

31 

4 

5 

45 

0 

2 

1 
3 

1 

8 

2 

1 

3 

3 

2 

2 

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 

8 

0 

1 

0 

6 

2 

6 

23 

0 

2 

2 

1197 

0 

10 

0 

1675 

110 

987 

3979 

0 

22 

22 

12 

2 

2 

0 

1 

1 

2 

1274 

726 

61 

0 

51 

161 

269 

1647 

164 

91 

250 

545 

70 

102 

20 

2542 

21 

2869 

1 

0 

1 

15 

0 

15 

4 

1 

5 

57 

7 

64 

28 

4 

4 

3 

10 

5 

10 

64 

5 

3 

8 

4118 

20.8% 

890 

162 

4.5% 

0.8% 

250 

2271 

341 

1358 

9390 

1.3% 

11.5% 

1.7% 

6.9% 

47.5% 

72 

29 

101 

0.4% 

0.1% 

0.5% 

Total all  Recipients 

59 

6268 

58 

4750 

75 

8736 

192 

19754 

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 

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DIRECTORATE GENERAL XXIII 
EVALUATION OF THE COMIVIUNITY ACTION PLAN TO ASSIST TOURISM 

CONTENTS 

Page 

SUMMARY  OF FINDINGS AND KEY RECOMMENDATIONS 

SECTION 1-INTRODUCTION 

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 

2.1 -  Introduction 
2.2 -  Objectives 
2.3 - Policy Areas 
2.4 -  Measures 
2.5 - Strategies and  Instruments 

SECTION 3 - TECHNICAL EVALUATION OF ACTIONS 

3.1  -  Methodology 
3.2 - Overall  Scores 
3.3 - Case  Studies 
3.4  - General  Assessment 

SECTION 4 • ADMINISTRATIVE AND OPERATIONAL ASPECTS 

4.1 - Description of the Administrative  and Management  Arrangements 
4.2 - Assessment of Arrangements  in Place 
4.3 -  Recommendations 

SECTION 5 - ASSESSMENT BY CONTRACTORS 

5.1  -  Methodology 
5.2 -  Analysis 
5.3 -  Lessons, Recommendations,  Suggestions  and  Best  Practice 

i 

1 

7 

12 

25 

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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 

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SUMMARY OF FINDINGS AND KEY RECOMMENDATIONS 

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 

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. 

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 

2 

3 

(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 

5 

6 

The  Plan also appears to be too ambitious given the human and financial resources available for the 
preparation and the implementation of the projects. 

The general lack of continuity between years is another  drawback. 

The general findings of this analysis are corroborated  by the main conclusions drawn from our 
interviews with key informants. 

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The Role and "Market Positioning" of the Tourism Unit 

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. 

Linked to this "market positioning" issue is the issue of the definition of the role and mandate of the 
Unit.  Options include: 

a 

b 

c 

d 

e 

f 

g 

a department co-ordinating EU initiatives in the tourism sector 

a forum through which interested parties can debate and seek consensus 

a regulatory department involved in managing aspects of the tourism sector,  for example in 
respect of accommodation rating, fire safety, and package holidays 

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) 

acting in a "commercial" capacity for example in running external promotional campaigns, in 
cooperation with the private sector and NTOs 

a body identifying, funding and promoting pilot schemes of potential European significance or 
value 

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 

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. 

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. 

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). 

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 

7 

8 

9 

10 

11 

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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 

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. 

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%. 

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. 

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. 

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). 

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. 

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. 

13 

14 

15 

16 

17 

18 

19 

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<H> 

20 

21 

22 

23 

24 

25 

26 

27 

28 

29 

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. 

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. 

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. 

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. 

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. 

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. 

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. 

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. 

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. 

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 

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30 

31 

32 

33 

34 

35 

36 

37 

38 

projects in the cultural area are dominated by technology  solutions and from these specific important 
conclusions relating to their technology can be drawn. 

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). 

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. 

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. 

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 

In Section 4, we give an overview of administrative and management arrangements and procedures, 
followed by our assessment.  Our main findings are summarised below. 

Administrative arrangements and procedures were weak at the beginning of the implementation 
period, but have been significantly improved in 1994 and 1995. 

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. 

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. 

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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# 

40 

41 

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. 

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. 

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 

46 

47 

48 

Partnership and co-operation with the various stakeholders (private and public, including Member 
States, National Tourism Offices and other industry interests) should be improved. 

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. 

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. 

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 

51 

52 

53 

54 

55 

56 

57 

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. 

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. 

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. 

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. 

The number of projects and studies funded should be significantly reduced in order to increase their 
impact and to limit administration. 

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. 

The proportion of meetings organised around a theme or a technical issue should be increased. 

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 

b 

c 

d 

dissemination of the best outputs generated by the actions funded (eg publication and 
distribution of completed reports) 

follow-up to successful projects and studies to draw lessons, and transfer best practice 

development of relationships with the tourism industry and other stakeholders 

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 

c 

d 

e 

f 

g 

increase internal consistency of the  programme 

include actions of a multiannual character 

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 

improve the procedures of preparation and planning, monitoring and evaluation of  projects 
(both internal and external, ie  independent) 

give a high priority to the dissemination of the results and the follow-up of the  actions 

ensure that the most successful sustainable actions carried out in 1993-95 are continued,  and 
reinforce the areas of success. 

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EVALUATION OF THE COMMUNITY ACTION PUN TO ASSIST TOURISM 
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SECTION 1 - INTRODUCTION 

4Jà 
W 

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 

b 

c 

be consistent with the principle of subsidiarity 

be cost-effective and make a significant impact on the Community tourism industry 

facilitate the development of the industry with particular reference to small and medium sized 
businesses 

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d 

e 

f 

g 

h 

encourage competition within the Community and increase the competitiveness of Community 
tourist services on the world market 

be conducive to preserving and protecting the quality of the natural environment, the cultural 
heritage and the integrity of local populations 

be conducive to improving the provision of information and services to the protection of tourists 

help improve the quality of Community tourist services 

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 

8 

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. 

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 

b 

c 

d 

e 

a co-ordination task within the Commission concerning other policies with an impact on tourism 

transnational pilot projects jointly funded by the Commission and other partners 

research studies on specific aspects of the tourism industry 

conferences and networks related to specific aspects of the tourism industry 

reports and consultative documents on tourism policy and practice for Community institutions 
and the industry. 

10 

11 

Appendix I contains the list of all the projects and studies supported. 

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 

15 

16 

17 

18 

19 

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 

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. 

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 
b 
c 
d 
e 
f 
g 

Exposure to the Tourism Action Plan 
Interface with Tourism Action Plan (co-ordination, complementarity, overlap etc) 
Assessment of the rationale of Tourism Action Plan: does the programme makes sense? 
Assessment of impact and effects: what has happened as a result of the programme? 
Achievement of programme objectives: has the programme achieved what was expected? 
Alternatives: are there better ways of achieving the results/objectives? 
Lessons, recommendations, suggestions, best practice. 

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. 

We set up a project database containing descriptive and financial information for all the 1993-95 
actions  (see Appendix I). 

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 
b 
c 
d 
e 

group the projects for review according to the official(s)  in charge 
set up a first discussion with the official(s) who made a brief introduction to the projects 
complete the Evaluation Fiches 
discuss the fiches with the EC official (s) 
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 
b 
c 
d 

need to cover all three years in so far as possible 
need to select, for each year, the projects with most significant budgets 
need to be representative of the annual priorities 
need for balance between successes and failures. 

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•• 

Table 1.1 -Case Studies 

Contractor 

Title 

1. L&R Leisure 

European Project for the Training of 
Operators in Tourism in Bulgaria and 
Slovakia 

2. HTL 

Tourism & Environment Prize 

3. Delvico/Bates 

Tourism Promotion of Europe as a 
Destination for Tourists in Long 
Distance Source Markets 

Year 

Funding 
('000 Ecus) 

1993 

220 

Domain 

Training Central & 
Eastern Europe 

1993 

1993 

381 

1000 

Environment 

Promotion 

4. Regione Toscana 

ETI - European Tourism Information & 
Booking 

1993 

200 

New Technologies 

5. Hjoerring 
Business College 

Development of a Training Strategy for 
Employees and Trainers within the 
Tourism Sector in the Cold Water 
Regions around the North Sea 

1994 

195 

Training 

6. FECTO/FOTVE 

The  "Art Cities in Europe" Programme 

1994 

7. Arthur Andersen 

Yield Management in Small and 
Medium Sized Enterprises in the 
Tourism Industry 

1994 

195 

392 

Culture 

Study 

8. National Institutes 
of Stat. & Others 

Theme: Development of Community 
Tourism Statistics 

On 
going 

4500 
(1995-97) 

Statistics 

9.  WTTC 

Theme: analysis of procedures through 
analysis of 1995 Environment projects, 
in particular the project European 
Community Network for Environmental 
Travel and Tourism 

1995 

631 

Analysis of 
tendering, 
assessment and 
implementation 
procedures 

10.  -

Theme: Coordination by Tourism Unit 

On 
going 

-

Horizontal activity 

We also reviewed the administrative aspects of the Plan, in particular selection and  monitoring 
procedures and management arrangements. 

1.5-Definitions 

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. 

22 

23 

24 

We distinguish between three types of actions: 

a 
b 
c 

studies (100% funded actions) 
projects (jointly-funded normally up to a maximum of 60%) 
other activities such as the co-ordination within the Commission. 

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1.6 - Structure of the Report 

25 

26 

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. 

Appendix VIII contains a summary of the assessment  by the key informants we talked to (we provide  a 
list of contacts in Appendix VII). 
Waterhouse. 

It should be noted that these are not necessarily the views of  Price 

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• 

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 

b 

c 

the immediate objectives which relate to particular actions (measures) and which must be 
expressed in quantitative terms as far as possible. 

the intermediate objectives are more detailed and specific.  They generally represent a "cause-
and-effect" assumption. 

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 

Immediate  Objectives 

Intermediate  Objectives 

Ultimate Objectives 

to increase the 
competitiveness of the 
European tourism 
industry 

to generate employment 
and growth in the 
European tourism 
industry 

- campaign sustained 
over three years 

- to promote Europe as a 
destination 

- improve use of existing 
infrastructures 

- support cultural 
itineraries 

- training (eg languages) 

- to improve 
communication links (eg 
links with Japan) 

- to launch new products 
targeting US and 
Japanese markets 

-etc. 

- to improve level of 
services 

-etc. 

30 

31 

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. 

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) 

(3) 

do the items at the next level down in the hierarchy contribute to the items at this level? (vertical 
consistency) 

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 
b 
c 

other policies contribute to the objective of fostering tourism 
tourism policy can contribute to the objectives of policy in other domains 
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 
b 
c 

to promote economic growth and employment 
to promote economic and social cohesion 
to promote "European citizenship". 

35 

36 

37 

38 

39 

40 

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. 

There may be tensions between these two sets of high level objectives  (eg between promoting growth 
and protecting the environment). 

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. 

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. 

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). 

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. 

Final Report-V2.0 

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 

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 generate income 
and  employment 

To promote the 
development of the 
tourist industry 

To improve the quality and 
competitiveness of the 
Community's tourism 
services on offer 

To contribute to 
economic and soda! 
cohesion 

To facilitate access to 
tourism by groups who have 
difficulty in taking holidays 

To expand the demand 
for the Community's 
tourism services 

To promote 
youth tourism 

To help tourists as 
consumers 

To improve knowledge of 
the tourist industry 

To promote 
transnational initiatives 

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 improve the quality of 
decision making at 
Community, Member State, 
local and private level 

To ensure greater 
consistency of 
Community  measures 

To preserve free 
competition 

\ 
\ 

-© 

©-

To foster "European 
Citizenship" 

To protect consumers 

Indirect impact -
feedback via other 
measures 

To promote small 
and medium sized 
enterprises 

Tf 

EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 
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SECTION 2 - PROGRAMME MODEL OF THE PLAN 

• 

2.3 - Policy Areas 

41 

42 

43 

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. 

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". 

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 

45 

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). 

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 

47 

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. 

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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• 

(2) 

(3) 

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. 

" 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)? 

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? 

10 

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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 

b 

c 

d 

implementation of specific measures, complementary to those taken at national level 

coordination of measures undertaken by Commission departments which affect tourism, and 
ensuring better integration of tourism with the various Community  policies 

promoting the development of transnational measures 

ensuring close cooperation between all public and private bodies in the sector. 

51 

52 

53 

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. 

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. 

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. 

11 

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SECTION 3 - TECHNICAL EVALUATION OF ACTIONS 

• 

SECTION 3 - TECHNICAL EVALUATION OF ACTIONS 

3.1 - Methodology 

54 

Whenever possible, our approach was in five steps, as follows: 

a 
b 
c 
d 
e 

we grouped the files for review according to the EC official(s)  in charge, 
the officials gave a brief introduction to the actions, 
the consultants assessed the actions against agreed criteria, 
discussed his/her evaluation with the relevant EC official(s) 
and then finalised the fiches. 

55 

56 

57 

58 

59 

60 

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. 

We also carried out ten case studies, of which three were "thematic" case studies. 

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 

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. 

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. 

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 

12 

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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 £ 

93  and  1994  Ac 

tions.  Breakdown by Year (% of 

total) 

Poor or very 
poor 

Average 

Good 

Very good 

Not relevant 
or not 
possible* 

1993 

36% 

25% 

19% 

15% 

5% 

(53 actions  reviewed) 

1994 

8% 

46% 

30% 

14% 

2% 

(37 actions  reviewed) 

*  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. 

* 
Table 3.2 - Overall Technical Assessment of 1993 and 1994 Actions.  Breakdown by Type of Action 

1993 

Group 1 ** 

Overall  Assessment 
Cost  Effectiveness 
Number  of  actions 

3.3 
3.3 
9 

Groups 2 
and 4 

No action 
funded 

Group 3 

Group 5 

2.9 
2.6 
17 

2.8 
2.6 
18 

1994 

Group 1 

Groups 2 
and 4 

Group 3 

Group 5 

Overall  Assessment 
Cost  Effectiveness 
Number  of  actions 

3.8 
3.0 
6 

3.0 
2.0 
3 

Only two 
actions 

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 

All Actions 

Only two 
actions, 
included 
in groups 
6 to 11 

2.9 
2.7 
53 

Group 10 

All Actions 

2.7 
2.2 
10 

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". 

63 

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. 

13 

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Table 3.3 - Overall Technical Assessment of 1993 and 1994 Actions.  Breakdown by Size (ECU) 

Up to 
50000 

50001 to 
100000 

100001  to 400000 

Above 
400000 

21 
38% 
3.5 
3.9 

7 
19% 
3.9 
4.1 

16 
23% 

11 
20% 
2.9 
1.9 

12 
32% 
3.3 
2.8 

17 
25% 

21 
38% 
2.2 
1.7 

18 
49% 
3.3 
2.6 

33 
48% 

2 
4% 

0 

3 
(4%) 

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 

3.3 - Case Studies 

64 

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 
Training of Operators In 
Tourism in Bulgaria and 
Slovakia 

Strengths - Significant involvement of local communities; successful pilot, new course material 
(fully customized) prepared with possible dissemination; achievement indicators indicate targets 
were met (No of attendees, assessment of university partners, response of participants); site 
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 
Prize 

Strengths  - Important project with high visibility and potentially large spin off effects; overall 
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 
because of a language problem); political and geographical mix considerations; 
proposal/contract did not specify procedures/arrangements for follow up and  supervision 

j 

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 
Europe as a Destination 
for Tourists in Long 
Distance Source Markets 

Strengths - Good logo and tagline; highly rated consultants used; good idea to use themes to 
sell Europe as a destination to avoid national sensitivities 

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. 

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? 

Development of a Training 
Strategy fa  Employees 
and Trainers within the 
Tourism Sector in the Cold 
Water Regions around the 
North Sea 

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 

66 

67 

68 

69 

70 

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. 

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). 

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 

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 

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. 

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. 

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. 

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 

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. 

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. 

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. 

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. 

72 

73 

74 

75 

76 

77 

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. 

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. 

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 

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. 

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. 

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. 

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 

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. 

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 

79 

80 

81 

82 

83 

84 

85 

86 

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87 

88 

89 

90 

91 

92 

93 

94 

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). 

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). 

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. 

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. 

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. 

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. 

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. 

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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96 

97 

98 

99 

100 

101 

102 

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.) 

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 

We give below comments on a selection of the actions initiated in 1995. 

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. 

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. 

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. 

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. 

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 

104 

Activities undertaken under the Plan are described in detail in the various reports to the Council and 
the European Parliament prepared by DG XXIII. 

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 

b 

c 

the development of Community tourism statistics 

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) 

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 

108 

109 

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. 

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. 

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). 

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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. 

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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 : 

Development  Ot C o m m u n i ty 
tourism  Statistics 

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) 
takes p|a ce eg to avoid duplication of efforts and develop core common set of data 
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. 

T h e me  2:  Selection  p r o c e d u r es 

(based  on  1995  environment 
projects) 

. 

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 
annual reports; annua) audited financial statement to be produced annually ; 
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. 

T h e me  3: 

Internal  CO-ordinatlon  by 
Tourism  Unit 

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" 
between departments; consultation for the Green Paper was a success; good co-
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. 

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4.1 - Description of the Administrative and Management Arrangements 

112 

113 

114 

115 

116 

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 

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. 

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. 

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 

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 

119 

120 

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. 

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%. 

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 

122 

123 

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 

The Plan was implemented via three annual work programmes.  A "timetable of priorities" for 1993 was 
specified in the Plan. 

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 

b 

c 

d 

e 

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 

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 

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 

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 

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 

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 

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. 

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. 

125 

126 

127 

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41k 

fllF 

Administrative Arrangements and Procedures 

128 

129 

130 

131 

Administrative arrangements and procedures were weak at the beginning of the implementation 
period, but have been significantly improved in 1994 and 1995. 

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. 

Communication lines at DG XXIII are lengthy, procedural and slow, and so is the decision-making 
process. 

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 
b 
c 
d 
e 

high turnover 
low percentage of "tourism experts" and generally inadequate presence of tourism skills 
inadequate training (eg in area of financial and project management) 
understaffing for the financial administration 
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. 

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SECTION 4 - ADMINISTRATIVE  AND  OPERATIONAL  ASPECTS 

• 

Table 4.1 - Project Se 

ection.  Calls for  Proposals  (Part-Funded  Projects) 

1993 

1994 

1995 

Stage 1 
Formal Conditions 

368 
(86 failed) 

281 
( 28 failed) 

Stage 2 
Screening 

282 
(158 failed) 

253 
(139 failed) 

Stage 3 
In-Depth Evaluation 

Final Selection 

124 
(63 failed) 

114 
(93 failed) 

61 shortlisted 
33 selected 

21 selected 

288 
(39 failed) 

249 
(130 failed) 

119 
(72 failed) 

47 shortlisted 
15 selected 

135 

136 

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. 

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 
b 

whether and how the political and geographical mix is taken into account at an early stage 
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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0 

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 

b 

c 

d 

e 

f 

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 

encouraging a more proactive role of the various Committees, with the support of experts, in 
identifying projects (innovative, trans-European, well funded, etc.) 

improving consultation mechanisms with the industry, for example by setting up ad-hoc working 
groups 

j 

increasing the involvement of NTOs 

involving other Directorates General in the selection process before the final selection is made 
by DG XXIII 

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 

145 

146 

147 

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. 

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. 

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. 

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. 

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0 

Staffing 

148 

In the area of staffing, corrective actions should be considered: 

149 

150 

151 

a 

b 

c 

d 

to reduce staff turnover 

to improve the in-house technical tourism expertise, eg through secondment from NTOs, and 
improvements in training provision 

to provide much more training to the staff (at all grade levels) 

to review the information technology in place. 

Administrative  Arrangements  and  Procedures 

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). 

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. 

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 

b 

c 

d 

e 

f 

to put in place simple procedures to monitor and evaluate the actions as they are implemented 
(on-going monitoring and evaluation) 

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 

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 

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 

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 

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 

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FINAL REPORT 
SECTION 4 - ADMINISTRATIVE  AND OPERATIONAL  ASPECTS 

4Là 
HIF 

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 

b 

to earmark resources in the project budget  at the preparation/selection stage (we understand 
that this has been done in 1995) 

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 

b 

c 

d 

to reduce the number of projects and studies funded in order to increase their impact and to 
limit administration 

to review the "call for proposal" procedure to reduce the administrative load and to maximise the 
effectiveness of the procedure 

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 

. 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 

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4Lfc 

^IIF 

158 

159 

160 

other  DGs. 

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 

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. 

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 

g\k 

fllF 

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 
b 
c 
d 
e 

project description 
achievement of objectives 
project implementation 
assessment of various aspects of project  implementation 
lessons, recommendations, suggestions and best practice. 

163 

164 

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. 

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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FINAL REPORT 
SECTION 5 - ASSESSMENT BY CONTRACTORS 

0 

Table 5.1 - Degree of Achievement  of Objectives 

Not at all 
successful 

Not very 
successful 

Fairly 
successful 

Very 
successful 

Mixed 

Not relevant 
or no reply 

1322 
Number of valid 
responses: 19 

1324 
Number of  valid 
responses: 23 

Total Number of 
valid responses: 42 

0 

0 

0 

0 

2 

7 

8 

9 

12 

2 

1 

1 

0 

2 
(5%) 

15 
(36%) 

21 
(50%) 

3 
(7%) 

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 

ect  Implement 

ation 

Poor or very 
poor 

Average 

Good 

Very good 

Do not know 

Not relevant 
or no reply 

1322 
Number of valid 
responses: 19 

1994 
Number of valid 
responses: 23 

2 
(10%) 

4 
(21%) 

7 
(37%) 

6 
(32%) 

0 

0 

15 
(65%) 

7 
(31%) 

Total number of 
valid responses: 42 

2 
(5%) 

4 
(10%) 

22 
(52%) 

13 
(31%) 

0 

1 
(4%) 

1 
(2%) 

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 

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EVALUATION  OF THE ACTION PLAN TO ASSIST TOURISM 
FINAL REPORT 
SECTION 5 - ASSESSMENT  BY  CONTRACTORS 

0 

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 
"dissatisfied" ** 
(No of responses) 

As a % of total No of valid 

responses 

A - Planning & preparation 

A1 - Clarity of objectives 

A2 - Quality of project design 

A3 - Effectiveness of partner(s)' 
participation in preparation and 
planning 

B - Dissemination 

B1 - Follow up of project after 
completion 

B2 - Dissemination of main results 

C - Management by Tourism Unit 
staff 

C1 - Financial & administrative 
monitoring by Tourism Unit staff 

C2 - Overall efficiency of Tourism 
Unit staff 

C3 - Responsiveness of Tourism Unit 
staff 

D - Co-ordination 

D1 - Quality of dialogue between 
Tourism Unit staff and other partners 

D2 - Coordination with other EU 
departments and non EU agencies 

6 

5 

3 

16 

10 

15 

13 

9 

12 

9 

11 

7 

9 

8 

14% 

12% 

7% 

38% 

24% 

36% 

31 % 

21 % 

29% 

21 % 

26% 

17% 

21% 

19% 

* Multiple response is possible 
** Measured by total of responses in three categories: average, poor, very poor. 

170 

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: 

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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 

173 

174 

175 

176 

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. 

There is s need for more exchange of information on (past, current) projects in similar fields of 
intervention. 

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. 

Indicators of achievement and targets should be specified (and quantified as much as possible) at the 
beginning of the project. 

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 
b 
c 

to circulate copies of the main deliverables to all the contractors 
to earmark in the project budget an amount for dissemination and distribution of key outputs 
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 
APPENDIX I  - DESCRIPTIVE STATISTICS OF ACTIONS 

gjjk 

f HF 

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" 

•ION PLAN - PROJECTS & STUDIES  1993-1995 

Contract Number 

Main  C o n t r a c t or 

Initial 
Budget 
(ECU} 

Type 
ùf 
Action 

Delvico  Bates 
GIAT 
Forum  Dello  Svilluppo 
FIPE 
AA-Automobile  Association 
International  Interactive  Multimedia 
GSI Transport  Tourism 
Regione  Toscana 
GEIST 
Club  des  Eurométropoles 
TIRS 
Chambre  Régionale  de  Commerce  Rhône-Alpes 
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 
R E D-  Ruralité  Environnement  Dévelopement 
Royal  National  Institute  for the  Blind 
Landkreis  Eisleben 
Ministero  del Toujismo e dello Spettacolo 
GruppoClas 
System  TV 
CEPFAR 
F y n T o ur 
Eurogites 
ETAG 
L  & R  Leisure  PLC 
AIT/FIA 
Contour 
Mobility  International 
Bates  & Wacker 
Directors  General  de Turismo 
Mobility  International 
Associano  Nacional de Jovens 
E T E N1 
TURINFORM 
Frosti du  Limousin 
DGF  -  Deutsche  Gesellschaft  fur  Freizeit 
EFCO 
TV5 
ITE 
ETEN  2 
FEG 
CETOS 
Agrupacion  de Asesores 
Mouvement 
HTL Conseil 

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: 

11 
1 
1 
33 
32 
32 
32 
32 
32 
31 
32 
31 
32 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
5 
3 
31 
5 
31 
1 
33 
1 
1 
8 
1 
1 
8 
9 
10 
32 
33 
1 
7 
5 
3 
10 
12 
8 
1 
1 
6 

55 

999628 
697800 
23250 
50000i 
99000j 
1200001 
2132001 
200000! 
244635 j 
130000; 
102300 ; 
96000 i 
114000! 
61980: 
70000j 
606061 
63600; 
460751 
900001 
136445i 
29275 ! 
61000: 
36000: 
46000' 
49659, 
47586 j 
102000; 
48000 
105000. 
160000 
15000; 
9840 ; 
34278 
10200 
220000 
11400 
49000 
60000. 
42100 
150000 
50000 
10189 
100800 
154890 
32000 
20000 
120000 
198000 
200000; 
95750 
20000 
65000 
199620 
110258 
381550, 

I 

j 
i 
I 
; 
i 
! 

i 
! 
! 

i 
i 

i 

! 
j 
i 

55 i 

6663 < "000 ECU 

121144 
999628 

ECU 
ECU 
9840 i  ECU 

61 

APPENDIX 

EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 

TOURISM  AC 

ION  PLAN  -  PROJECTS  &  STUDIES  1993-1995 

Contract Number 

Main Contractor 

Initial 
Budget 
LECU) 

Typ» 
Of 
Action 

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 
94 540054 
94 540064 
94 540065 
94 540067 
94 540075 
94 540077 
94 900107 
94 900118 
94 900120 

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) 

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 

j 

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 

No projects 94: 
Total 1994: 
Mean value 94: 
Maximum 94: 
Minimum 94: 

37 
4330 
117030 
392600 
11100 

•000 ECU  j 
ECU 
ECU 
ECU 

! 

37 
| 
i 
1 
i 

! 

^  O 

APPENDIX I 

EVALUATION OF THE COMMUNITY ACTION PLAN TO ASSIST TOURISM 

TOURISM AC 

"ION PLAN - PROJECTS & STUDIES 1993-1995 

Contract  Number 

Matrt Contractor 

1995 

y 

J 

Initial 
Budget 
(EÔUI 

Type 
of 
Action 

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. 

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) 
Inst.Nat. de Stat. (IRL) 
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) 

j 

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 
130000 ! 
70000 
230000 
40000| 
1300001 
230000 
130000 
130000 
70000 
230000 
130000 
500240 
84478 
238792 

38630 ! 
137670 ! 
156486| 
1893901 
6310001 
1300001 
91380 
60700 
178300 
195757 
127800 
30000 
152971 
98552 
190000 
98749 
99840 
66121 
40000 
60000 
163159 

69 
8764 
127015 
631000 
7500 

•000 ECU 
ECU 
ECU 
ECU 

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! 

n 

ii 
1  , 
1  ! 
1  ; 
1  ; 
1! 
1! 
ij 

il 

11 
1  i 

1  ; 

3 2; 
32] 
32; 
3 2| 
32; 
6 
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 
APPENDIX  II - CHECKLIST FOR INTERVIEWS  OF KEY INFORMANTS 

41a 
*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 

Price Waterhouse  - Evaluation  of the TOURISM ACTION PLAN 

Proforma for Assessment  by  Expert  Consultant 

Status  of  Assessment 

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 

Score 
(1-5) 

Comments 

1  - Quality  of  Goal-Setting 

1 . 1-  Clarity  of  objectives 
in call  for  tender 

1.2 - Quality  of 
goal-setting  in  proposal 

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 

2  - Outputs  of  the  Proiects  - Incidence  of  Effects 

| 

| 

Score 
(1-5) 

Comments 

, 

"  "  ' 

" 

2.1  -  Degree  of  achievement 
of  objectives  in  terms  of 
quantity 

2.2  -  Degree  of  achievement 
of  objectives  in  terms  of 
quality 

Subtotal 

2.3  - What  if  any  are  the 
weaknesses  of  the  project? 

2.4  - What  if  any  are the 
positive  outcomes  of  the 
project? 

X 

X 

i 

| 
_i 

i 
j 
j 

_ _ _ _ _ _ _ —i 
I 
J 

^ 

^ 

I 
i 

i 

j 
j 

! 

1 

j 
! 
| 

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 
(1-5) 

Comments 

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 
(1-5) 

Comments 

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  t he  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 

I 

I 

I Still  ongoing  but NOT delayed 

I Still  ongoing  but delayed 

I Completed  and final report  submitted 

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 

Not at  all 
successful 

Not  very 
successful 

Fairiy 
successful 

Very 
successful 

Do  not 
know 

Not 
relevant 

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 

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: 

I 
l 
I 

j 
i 

i 

i 

Vr 

B 1 .5  -  D e g r ee  of  A c h i e v e m e nt  of  P e r f o r m a n ce  Indicators 

Please  indicate  t he  e x t e nt  to  w h i ch  t he  p e r f o r m a n ce  indicators  have  been  a t t a i n e d. 

1 

Indicator  of  Achievement 

Target(s)  initially 
planned 

Actual  outcome(s) 
at  completion 

1 

1 

! 
|  Reasons for  differences  from 
j 

target 

— 

i 
| 
j 
i 
I 
| 
j 

l 
! 

i 
j 

i 

Indicator  1  (as  defined 
above) 

Indicator  2  (as  defined 
above) 

Indicator  3  (as  defined 
above) 

Other: 

I 

I 

Benefits  a nd  N e g a t i ve  Effects  Arising  f r om  t he  Project 

B 1 .6  -  Please  give  t he  m a in  benefits  arising  f r om  t he  project: 

Benefit  1 : 

Benefit  2: 

Benefit  3: 

/ 

Other  benefits. If  any: 

B 1 .7  -  If  a n y,  please  give  t he  m a in  n e g a t i ve  e f f e c ts  arising  f r om  t he  project: 

Negative  effect  1 : 

Negative  effect  2: 

Negative  effect  3: 

Other  negative  effects, if  any: 

B 1 .8  -  W h at  w o u ld  have  h a p p e n ed  in  t he  a b s e n ce  of  T O U R I SM  A C T I ON  PLAN  f u n d i n g? 

I 

I The  project  would  NOT  have  taken  place 

I 

I 

I The  project  would  have taken  place  but  LATER 

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  r o w. 

Indicators 

Poor 

Very 
poor 

Average 

Good 

Very 
good 

Don't 
know 

Not  relevant 

A  - Planning &  Preparation of  Project 

i 

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 

1 
! 
i 
i 
j 
1 

1 

j 
J 

j 

1 
1 
i 

1 

I 

i 
i 
i 

j 

i 

i 
I 

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? 

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: 

J 

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  9 39  3 4 74 
Tel:  + 44  171  9 39  3 3 31 

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. 

B. 

Involvement in the project: since/until when?  Role? 

Exposure to the Tourism Action Plan: How familiar are you with the Tourism Action Plan 
programme? 

Preparation & Rationale 

1. 

2. 

3. 

4. 

5. 

Origin of the project: who initiated the project?  Brief history/background. 

Rationale: principles underlying the project?  Justification?  Which problems is it addressing? 
Main relevant characteristics of the environment in which project is taking place? 

Describe preparation and planning of the project. 

Briefly describe how the consultant contracts have been awarded and the reasons for the 
selection. 

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: 

• 

Objective 1 (most important): 

Objective 2: 

Objective 3: 

Other objectives, if any: 

9. 

Please rate the degree of attainment of these objectives - Tick only one box per row in the table 
below. 

Not at all 
successful 

Not very 
successful 

Fairly 
successful 

Very 
successful 

Do not 
Know 

Not 
Relevant 

• 

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 

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 

Target 
(initially planned) 

Actual 
(at completion) 

Reasons for differences 
from target 

Indicator 1  (as 
defined above) 

Indicator 2 (as 
defined above) 

Indicator 3 (as 
defined above) 

Other: 

Interface of Tourism Action Plan with other programmes/policies (Co-Ordination. Complementarity.  Overlap. 
et£l 

12. 

13. 

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? 

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. 

23. 

Has the project  results been disseminated?  What was the follow up,  and who did it?  Has the 
project been replicated? 

(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 
in  particular  Article  235 
Economic  Community,  and 
thereof 

Having  regard  to  the  proposal  from  the  Commission  ('), 

Whereas,  tourism  can  make  an  effective  contribution  to 
achieving  economic  and  social  cohesion  in  the  Community 
and  whereas 
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; 

it  can  promote 

in 

Having 
regard 
Parliament (2),  . 

to 

the  opinion  of 

the  European 

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; 

Having  regard  to  the  opinion  of  the  Economic  and  Social 
Committee (3), 

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  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  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; 

in  view  of 

Whereas, 
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  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 
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; 

facing  European 

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  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  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; 

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  h aw  a  major 
effect  on  tourism. 

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. 

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 
to  be  taken.  The 
committee  a  draft  of  the  measures 
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.  T he  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 
committee  shall  be_weighted  in  the  manner  set  out  in  that 
Article.  The  chairman lhall  not  vote. 

the  Member  States  within 

if 

these  measures  are  not 

The  Commission  shall  adopt  measures  which  shall  apply 
\ immediately.  However, 
in 
accordance  with  the opinion  of  the committee,  they shall  be 
communicated  by 
the  Council 
the  Commission 
to 
forthwith. 
the  Commission  shall  defer 
application  of  the  measures  which  it  has  decided  for  a 
period  of  two  months  from  the  date  of  communication. 

that  event 

In 

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  J 

the  action  plan 

I.  The  Commission  shall  put 
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 
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 
-current' 
roceduces. 

accordance  •  with 

in  relation  both 

concerned, 

in 

)  OJ  No  I.  197.  18.  7,  1987,  p.  JJ. 

Article  4 

1.  The  measures  must  be  consistent  with  (he  principle  of 
subsidiarity. 

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 

industry  with  particular 
medium-sized  businesses; 

reference 

tourist 
to  small  and 

(c)  they  must  help  improve  the  quality  of  Community 

tourist  services;  . 

(d)  "they  must 

encourage 

Community  and 

increase 
' C o m m u n i ty  tourist  services  on  the  world  market;. 

competition  within 

the 
the  competitiveness  of 

M> 

No  L 2 3 1 / 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. 

be 

through 
shall 
3.  The  measures 
coordination  with 
if 
and, 
the  national 
necessary,  with  the  regional  or  local  authorities  as  well,  so 
as  to  take  account  of  the 
for 
regional  development. 

implemented 
authorities 

importance  of  tourism 

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.  T he  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  1 9 9 5,  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  1 9 9 2. 

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 

I.  COMMUNITY  MEASURES  TO  ASSIST  TOURISM 

ANNEX 

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  k n o w - h ow  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 
time-share 
existing  classification 
protection, 
arrangements,  over-booking  and  procedures  for  redress. 

systems,  '  signposting 

in  areas  such 

symbols, 

is 

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 

1 3 . 8 . 92 

This  will  be  carried  out  by  means  of  the  following  measures: 

(a) 

support  for  initiatives  to  develop  n ew  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 

T he  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 

including  experience  of  environmental  problems  and  their  possible  solution 
management  at  sites; 

involving  transnational  exchanges  of  experience, 
through  visitor 

(d)  support  for  initiatives'encouraging  forms  of  environment-friendly  tourism. 

7.  Rural  tourism 

I 

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  w h o,  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 

1 3 . 8 . 9 2, 

.Official  Journal  of  the  European  Communities 

•• 

No  L  2 3 1 / 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  2 3 1 / 32 

Official  j o u r n al  of  the  E u r o p e an  C o m m u n i t i es 

1 3 : 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  k n o w - h ow  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 

transnational  exchanges  of  experience, 
including  experience  of  environmental  problems  and  their  possible  solution  through  visitor 
management  at  sites; 

involving 

(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,  t o u r i s m, 

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 

Department of National Heritage (UK) 
Minlsterio de Comercio y Turismo (E) 
Department of Trade & Tourism (IRL) 
Department of Trade & Tourism (IRL) 
Borde Fallte (IRL) 

ETOA 
ETC 
AIT/FIA 
ECTAA 
Deutscher Stadte und Gemeintebund (D) 
EUTO 
WTTC 
HOTREC 
ECATRA 
IATA 
ETAG 
UFTAA 
European Travel Monitor (Munich, D) 
Luxembourg 
Finland 
France 
Greek National Tourism Organisation 
Belgium 

1  Daniela Hesse-Wagner 
2  Robert Hollier 
3  Lisa Davies 
4  De Blust 
5  E Giesen 
6  W Burnett 
7 G Llpman 
8  M Sequaris 
9  F H Aldous 
10 Mr Smithies 
11 LLickorish 
12 Lepage 
13 MrFreitag 
14 RZimmer 
15 Bent PilstrSm 
16 JL Deroide 
17 E Hadzinikolaou 
18 Claude Pirard 
19 Dr.ssa. Cesarina Mislani  Dipartimento del Turismo (1) 
20  Keith Gibbins 
21 Teresa Castillo 
22  Shane O'Neill 
23  Paul Bates 
24 Ciaran Tulte 
25 JP Bastos Salazar Lelte  Directorate General for Tourism (P) 
26  Mr Schneider 
27 L Harrison 
28  E McMillan-Scott 
29 P Comelissen 
30  Mr Hansen 
31 Giacomo Regaldo 
32 Kirchberger 
33 Van Hasselt 
34  E Power 
35  D Givord 
36 Comaert 
37  M Lepelletier 
38  BWeherns 
39  Manuel Ruiz Sanz 
40 Xavier Coyer 
41  Danae Penn 
42  Pyrhus Mercouris 
43  Mr Enthoven 
44 T O'Dwyer 
45  G Barrett 
46  E Pongas 
47  Professor V Middleton 
48  E Pad 
49  Mr Dupeyras 
50 Prof John O'Hagan 
51 George Moustakas 
52 Palle Damkjaer 
53  Rene Ladiges 
54  Elsisabeth de Bodinat 
55 Christine Bussière 
56 Yves Comu 
57 Sylvie Blangy 
58  Paolo Bonglni 
59 Gerry Carver 
60 A de Varax 
61  Elizabeth Jeffries 
62  Hans Domenlcus 
63  Kal Gelger 
64  Jan Kobemuss 
65  Falco de Clerck 
66 Andrew Lennox 
67  Carlos Freite 
68  Ana Alonso 
69 lEulogio Bordas 

Bundesmlnlsterium fur Wirtschaft (D) 
European Parliament 
European Parliament 
European Parliament 
Committee of the Regions 
Economic & Social Committee 
DG XXII 
Air Transport Policy - DG VII 
DG XVI « Regional Policies 
Rural Development - DG VI 
DGXI 
DG VII 
DGV 
DGV 
DGV 
DGVII 
DG X 
DGXl 
DGXX1I 
DGVIII 
Eurostat 

World Trade Organisation (WTO) 
OECD 
Trinity College (Dublin. IRL) 
International Interactive Multimedia 
Hjoerring Business College (DK) 
Hjoerring Business College (DK) 
Agence Vitesse (Paris. F) 
Agence Vitesse (Paris. F) 
HTL - Bossard Sociologie (Paris. F) 
Expert (Montpellier. F) 
Regione Toscana (Florence, I) 
L&R Leisure (Haywards Heath, UK) 
Office du Tourisme (Lyon, F) 
Greater Manchester (UK) 
Amsterdam Tourist Office (Amsterdam, NL) 
IfB (Konstanz. D) 
Institute fur Freizeit (Cologne. D) 
Institute for Service Management (Leeuwarden. NL) 
Central College of Commerce (Glasgow, UK) 
Arthur Andersen (Lisbon. P) 
DeMco Bates (Madrid. E) 
|THR (Barcelona, E) 

I 

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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EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX VIII - ASSESSMENT BY KEY INFORMANTS 

gtfk 

^IlF 

Rationale for the Plan 

10 

11 

12 

13 

14 

15 

16 

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. 

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. 

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. 

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. 

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. 

/ 

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. 

Generally, interviewees think that the following factors have contributed to "the small and fragmented 
project" approach: 

a 

b 

c 

d 

e 

the need to satisfy a very broad framework of objectives ("a patchwork") 

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 

inadequate funding given the ambitious objectives of the Plan 

inadequate staffing of the Tourism Unit (both in terms of number and expertise) 

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. 

Final Report • V2.0 

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EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX VIII - ASSESSMENT BY KEY INFORMANTS 

gVk 

^S\W 

Assessment of Impacts and Effects 

18 

19 

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. 

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 

b 

c 

brought Member States together for useful discussions on Tourism (catalyst role) 

increased the awareness of particular key issues amongst Member States, for example the 
environmental aspects 
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. 

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. 

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. 

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. 

More emphasis should be placed on the great potential which the Tourism industry has for promoting 
sustainable development, and improving and maintaining the environment. 

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'. 

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. 

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. 

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 

21 

22 

23 

24 

25 

26 

27 

28 

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EVALUATION  OF THE ACTION PLAN TO ASSIST  TOURISM 
APPENDIX  VIII - ASSESSMENT  BY KEY  INFORMANTS 

4» 

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 

b 

c 

d 

e 

f 

I 

Cultural itineraries, such as "Routes to the Roots" and "Art Cities in Europe" 

Baltic Sea Region Cultural Project 

A number of projects in the area of Tourism & the Environment  (eg Prize) 

Certain projects in the area of information technology 

Projects developed in Greece to develop training modules on training, management and 
technical skills 

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 

b 

c 

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 

The promotion in the USA, "a monumental worry", a "complete waste of money" 

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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4 ° ? 

EVALUATION OF THE ACTION PUN TO ASSIST TOURISM 
APPENDIX VIII - ASSESSMENT BY KEY INFORMANTS 

use of the existing EU instruments) 

(b) 

the national tourist strategies and plans 

0 

(c) 

regional and local authorities, Chambers of Commerce and other industry stakeholders 

b 

c 

d 

e 

f 

formally recognise Tourism's potential in the areas of economic development and generating 
employment opportunities 

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 

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 

greater involvement of the private sector in both the formation and implementation of policy 

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 
We now summarise the findings from our interviews with key informants.  Note that these are not 
necessarily the views of Price Waterhouse. 

The Plan has given "Tourism" more recognition within the EU.  It has brought interested parties and 
stakeholders together to discuss common issues. 

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. 

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. 

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. 

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. 

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? 

34 

35 

36 

37 

38 

39 

40 

41 

This leads on to thinking about what needs to be developed eg. high standards and common 

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EVALUATION OF THE ACTION PLAN TO ASSIST TOURISM 
APPENDIX VIII - ASSESSMENT  BY KEY  INFORMANTS 

0 

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. 

i 

Final Report • V2.0 

^1 

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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