Report from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions on Community measures affecting tourism (1995/96)
Date: 1997-07-02
Institutions: European Commission
Subjects: EU action, EU programme, report, tourism policy

COMMISSION  OF THE EUROPEAN  COMMUNITIES 

Brussels,  02.07 1997 
COM(97) 332  final 

REPORT FROM THE COMMISSION 

TO THE COUNCIL, THE EUROPEAN PARLIAMENT, 
THE ECONOMIC  AND  SOCIAL COMMITTEE 
AND THE COMMITTEE OF THE REGIONS 

ON 

COMMUNITY MEASURES 
AFFECTING TOURISM 
(1995/96) 

TABLE OF CONTENTS 

1. 

GENERAL  INTRODUCTION 

1.1 
1.2 

Scope of the report 
Overview 

2. 

ENCOURAGING  MOBILITY AND PROTECTION  OF TOURISTS 

2.1 
2.2 
2.3 
2.4 

3. 

3.1 
3.2 
3.3 
3.4 

4. 

Improving freedom  of movement for tourists 
Ensuring the protection of tourists as consumers 
Facilitating access to tourism for certain groups of the population 
Encouraging responsibility  - combating child sex tourism 

REINFORCING  THE COMPETITIVENESS OF THE EUROPEAN 
TOURISM  INDUSTRY 

Stimulating a favourable  environment for tourism  business 
Fostering the modernisation  of the tourism  industry 
Stimulating tourism development  in less developed areas 
Encouraging tourism development in third country  partners 

ENCOURAGING RESPONSIBLE  USE OF TOURISM 
RESOURCES 

4.1 
4.2 

Strengthening  sustainable tourism  development 
Enhancing the partnership between tourism and culture 

5. 

CONCLUSIONS 

ANNEX 

1. 

Tourism in the Balance of Payments - 1996 

2. 

3. 

4. 

Number of bedplaces in hotels and similar establishments - 1996 

Nights spent by tourists in all types of registered tourist accomodations - 1996 

Community contributions allocated to tourism  in Single Programming  Documents 
and Community  Support Frameworks (Structural  funds  1994-1999). 

1. 

1.1 

GENERAL  INTRODUCTION 

Scope of the report 

This  report,  which  presents  an  overview  of  Community  measures  affecting  tourism 
undertaken in  1995/96, is  presented in accordance with Article 5 of the Council  Decision 
92/421 /EEC of 13 July  1992 on Community actions to assist tourism1. 

Most of the actions described  in the report have been implemented  within the  framework 
of  a  wide  range  of  Community  policies  and  programmes  which,  while  not  specifically 
designed  in terms of tourism  objectives, have nevertheless  an important  influence  on the 
development  of the tourism  industry,  on the interests  of tourists, and  on  the  exploitation 
and preservation of the assets which are utilised by tourism. 

In  order  to  give  the  clearest  possible  view  of  the  impact  of  the  measures  on  the  main 
components  of  tourism,  namely  the  tourist,  the  tourism  industry  and  tourism  resources, 
the structure of the report  follows  this typology. Nevertheless,  it should  be borne  in mind 
that  these  components  as  well  as  the  related  measures  are  directly  interlinked.  The 
implications,  beneficiaries,  together  with  measurable 
specified  objectives,  financial 
outputs  and  progress  made,  are  described  in  respect  of  each  main  area  of  Community 
activity relevant to tourism. A more exhaustive catalogue of information  on these  aspects 
is available by way of a Working Document of the Commission  Services. 

The Commission  has already  forwarded  to the Council  of Ministers  and to the  European 
Parliament  a  report2  on  the  evaluation  of  the  Community  Action  Plan  to  assist  tourism 
(1993-95), in relation to the actions launched  in the  first  two  years  (1993  and  1994). As 
regards  1995 many of the projects  launched in that year will only come to fruition  in June 
1997  and  one  of  the  most  important  pilot  actions-launched  under  the  Plan  will  only  be 
concluded  in  1998. Evaluation  of these measures  will  therefore  be  undertaken  later.  Due 
to the  nature  of this  exercise, the financial and  control  aspects  of  the  implementation  of 
the  Plan  are  not  addressed  in this report,  and will  be dealt  with  by  the  Commission  in a 
separate report to the Court of Auditors. 

An effective  evaluation of the large number of actions affecting  tourism carried out under 
other  Community  policies  and  programmes  (indirect  measures)  raises  several  issues  in 
relation  to  methodology,  selectivity,  cost  effectiveness  etc. Besides,  some  of  the  actions 
to  be  evaluated  in  a tourism  perspective,  for  example  in  relation  to  the  structural  funds, 
would  be evaluated  in terms  of  the objectives  set  for  the  policies  concerned.  The  issues 
arising  will  be the  subject  of ongoing  review  by the  Services  concerned;  more  effective 
co-ordination  is,  of  course,  an  essential  pre-requisite  to  assessing  priorities  for  the 
purpose of evaluation of indirect measures related to tourism. 

1.2 

Overview 

Tourism is a phenomenon which involves the majority  of European citizens, as users and 
providers  of  tourist-related  services,  in  Member  States  and  in  a  wide  range  of  third 
country partners. 

The  European  Union  still  maintains  its  leading  position  in  world  tourism  with  a  growth 
rate  in  1996 of 4.2% in terms  of  international  arrivals  and  of  4.5% in terms  of  receipts. 

1 
2 

OJ  L 231 of  13.8.1992, p.28. 
COM(96)  166 final  of 30.04.1996 

Despite  Europe's  decrease  of  world  market  share  - between  1990  and  1996  it  has  been 
reduced by 7% in terms of receipts and 4% in terms of arrivals - it is the main originating 
area  as  well  as  the  main  destination  of  international  tourist  flows  in  terms  of 
arrivals/departures,  of  receipts  and  of  international  commercial  exchanges.  EU  Member 
States  account  for  12  out  of  40  top  tourist  destinations  in  the  world  and  in  1996  they 
accounted  for  40% of arrivals, 38% of receipts  and 42 % of expenditure  in  international 
world  tourism.  Tourism  activities  employ  directly  9 million  people, representing  6%  of 
total  employment.  It  has  an  important 
indirect  effect  on  employment  in  connected 
services,  and  in  some  tourism  intensive  economies  its  contribution  in  terms  of jobs  is 
substantially  higher than  the average.  It is estimated  that,  by the end  of the next  decade, 
travel and tourism jobs will have increased by some 2 million, and will represent over 9% 
of total employment  in the European Union3. 

1995/96 represents  an  important  period  in the  progressive  involvement  of the  European 
Community  in  assisting  tourism,  both  in  the  case  of  direct  and  indirect  Community 
measures  affecting 
tourism.  Indirect  measures  comprise  programmes  and  policy 
measures which affect  tourism but which are not developed  or executed  in order to attain 
specific  objectives  in  the  field  of  tourism.  On  the  other  hand  direct  measures  have 
specific  tourism  objectives  and  comprise  in  large  part  pilot  or  exploratory  actions 
designed to show what could be achieved on a wider scale. 

From  an institutional  point of view, the launch of a wide consultation  on the basis of the 
Commission's  Green  Paper4  in  April  1995  on  the  role  of  the  Union  in  the  field  of 
tourism, which  culminated  with  the  European  Tourism  Forum  held  by the  Commission 
in December  1995, represented a major  effort  in the assessment of the needs and scope of 
Community  action.  The  outcome  provided  a  direct  contribution  to  the  work  of  the 
Intergovernmental  Conference,  which  however  has  not  taken  a  decision  in  relation  to 
whether the present reference to tourism in the Treaty should be made more  specific. 

From  an operational  point  of view this period  was marked  by the finalisation of  several 
programmes,  the  evaluation  of  their  implementation,  and  the  definition  and  launch  of 
new  initiatives  and  proposals  such as the  Commission's  proposal  for  a first Multiannual 
Programme to Assist European Tourism  , "Philoxenia" (1997-2000)5. 

The  measures  relating  to  tourism  undertaken  by  the  European  Community  in  1995/96 
continued  to  reflect  the  multi-disciplinary  and  horizontal  nature  of tourism  activities,  in 
the full  respect of competences assigned to the European Union in this field, and  without 
impinging  on the direct responsibility  of Member States in tourism matters. 

These  measures  have  been  influenced  by  the  specific  objectives  prescribed  under  the 
Community  Action  Plan  (1993/95)  to  assist  tourism,6  the  mandate  of  the  Tourism 
Advisory  Committee7  composed  of representatives  from  the  Member  States,  and  by  the 
objectives  prescribed  for  the  purpose  of  other  Community  policies  and  programmes 

3 
4 
5 
6 
7 

WTTC, Travel and tourism - Jobs for the millennium, London,  1997 
COM(95)97 final of 4.4.1995 
COM(96)  168 final of 30.4.1996 and COM(96) 635 final  of 4.12.1996. 
OJ L 231 of  13.8.1992, p.28 
OIL  384 of 31.12.1986, p.52 

which  are  of  particular  relevance  to  tourism  (regional  policies,  environment,  transport, 
consumer, education, training, cultural  programmes, etc.). 

In the implementation  of the Community  Action  Plan in  1995/96, particular attention  has 
been given to: 

•  Gaining and improving knowledge about European tourism; 

•  Promoting transnational co-operation to stimulate the quality of tourist services; 

•  Strengthening  co-operation  and  consultation  with  public  and  private  bodies  and 
organisations concerned, and improved internal co-ordination  within the Commission. 

Over the same period, relevant measures taken  under other Community  programmes  and 
policies have contributed to: 

•  facilitate  citizens'  mobility  and access to tourism, as well  as to improve protection  of 

tourists as consumers; 

• 

improve  the  economic  and  social  environment  for  the  development  of  tourist 
activities; 

•  bring about a sound relationship between tourist activities and natural, man-made and 
cultural resources, in the interest of  balanced and sustainable tourism development. 

The key components of tourism, namely the tourist, the tourism industry, and natural and 
cultural  resources  have  all  been  affected  by  actions  undertaken  at  Community  level  in 
1995/96. 

For  reasons  which  have  been  widely  indicated,8  many  of  the  actions  carried  out  in  the 
early part of the Tourism Action Plan (1993/95) have turned out to be problematic.  The 
Commission  is carrying  out a full  review  of all  completed  actions  undertaken  under  the 
Tourism  Action  Plan  in  earlier  years  and  will  proceed  to  raise  recovery  orders  and  to 
pursue irregularities where necessary. The disappointing results from  the Plan represent a 
lost  opportunity  both  in  terms  of  the  identification  of  problems  and  opportunities  for 
tourism  in  Europe  and  in  making  valuable  experience  and  information  available  to  the 
managers  of  other  Community  policies  and  programmes.  Worthwhile  projects  have 
nevertheless  been  launched  under  the  Plan,  especially  in  the  latter  years,  and  the 
experience gained will be invaluable in the management of future  actions. 

2. 

ENCOURAGING  MOBILITY  AND PROTECTION  OF  TOURISTS 

Recent analysis shows that the internationalisation  of tourist flows  is growing faster  than 
domestic tourism. Within the European Union the number of nights spent abroad  by non 
residents  has  increased  by  4.5%, while  domestic  tourism  has  increased  by  1.9% in  the 
last two years9. 239 million  international  tourists  arrivals  (40.3% of world  market  share) 

Court of Auditors Report 3/96 on tourist policy and the promotion  of tourism, together with the 
Commission's replies OJ C  17 of  16.1.1997, p.l; and COM(96)  166 final  of 30.04.1996 
European Commission, Tourism  in Europe - Key Figures  1995-96, OOPEC, Luxembourg,  1997 

4 

and,  according  to the  World  Tourism  Organisation,  the equivalent  of  165 billion  dollars 
of receipts (39% of world market share) were registered10 in Member States in 1996. 

The  tendency  for  Europeans  to  take  shorter  but  more  frequent  holiday  trips  during  the 
year,  together  with  renewed  interest  from  the  United  Slates  and  from  Japan  in  visiting 
several  EU  Member  States,  are  contributing  to  the  expansion  of  the  European  tourist 
market.  This  is  also  one  of  the  direct  effects  of  the  progressive  establishment  of  the 
Single  Market  and, to an extent  also of the  development  of the  consumer  policy,  factors 
which  tend  to  add  to  the  confidence  of  tourists  venturing  outside  their  country  of 
residence. 

Likewise,  the  gradual  liberalisation  of  air  transport  rules  and  lower  cost  of  fares  have 
stimulated  long-haul  travel  and  have  encouraged  significant  growth  in  tourists'  flows, 
especially  from  southern to northern European  countries, and more generally  from  EU to 
overseas  countries.  Moreover,  the  desire  for  greater  mobility  on  the  part  of  both  the 
young  and  the  elderly,  and  the  disabled  also  has  led  to  an  increasing  focus  on  their 
specific  needs in terms of tourism related services required. 

The improvement of arrangements to ensure free  movement of persons within the Union, 
the protection  of consumers'  rights, and  facilitating  the  integration  of the disabled,  have 
been  among  the  priority  questions  at  Community  level  in  the  context  of  encouraging 
tourist  activities. The emphasis on these aspects is a practical illustration of the efforts  of 
the European Commission to place the citizen at the centre of the construction of Europe. 

2.1 Improving freedom  of movement for tourists 

The right of the EU citizen to freely  visit any  Member  State without  restriction  has been 
one  of  the  earliest  and  most  visible  achievements  of  the  European  Community.  The 
elimination  of  border  controls  between  EU  countries,  the  central  element  of  the  single 
market  programme,  represents  a  further  commitment  of  the  Union  in  favour  of  greater 
mobility  of people within Europe, and ensuring their freedom  to travel throughout the  full 
Community territory without hindrance. 

The  final  implementation  of this  principle  has not  however  progressed  as rapidly  as had 
been  anticipated,  in accordance  with article 7A of the Treaty. The removal  of controls at 
EU internal  frontiers  has been fully  implemented  only with regard to customs - in respect 
to  luggage of travellers  - and, as far  as individuals are concerned,  only in those  countries 
which  have  implemented  the  Schengen  agreement  (Belgium,  Germany,  Spain,  France, 
Luxembourg, Netherlands and Portugal). 

With a view to fostering the establishment of an area without "barriers" ensuring the removal of 
controls on persons at Member States'  frontiers  and facilitating  persons from  third  countries as 
regards getting a visa to the European Union for the purpose of travel throughout its territory, the 
Commission  proposed  two  complementary  directives  in  1995,  which  have  been  revised 
following  the  European  Parliament's  opinion  of  October  1996".  The  implementation,  since 

10 
1 ' 

World Tourism  Organisation,  Regional  Report - liurope, Madrid,  1997 
COM(95) 346 and COM (95) 347 of  12.7. ] 995 revised  by COM (97)  Ï 06 of 20.3.1997 

11996, of two Council  Regulations12 of particular  interest to tourists from  third  countries, namely j 
one  in re'atton to a unique  EU model of VISA and the second  indicating third  countries of origin \ 
for  which  a Visa  is required  to enter  EU territory,  should  contribute  to strengthening  the  image 
of Europe as a single tourist destination. 

In  parallel  at  the  level  of  intergovernmental  co-operation,  the  implementation  of  the  Schengen 
(Belgium,  Germany,  Spain,  France, 
agreement  between  seven  European  countries 
Luxembourg,  Netherlands  and  Portugal)  since  1995,  and  its  further  enlargement  to  three j 
other  countries  (Italy, Greece  and  Austria)  envisaged  in the  course  of  1997, will  show the  clear 
advantages for tourists in the removal of controls on persons at internal  frontiers. 

2.2  Ensuring  the protection  of tourists  as  consumers 

Actions  undertaken in the  last two years have ensured  in  particular: 

the  improvement  of  information  to  tourists  in  order  to  raise  awareness  of  their 
rights  in accordance  with  Community  legislation  in  place; 

the  assessment  of  particular  problems  considered  of  general  relevance  and 
affecting  the economic  and  safety  interests  of tourists; 

the  consolidation  of 
Community  level  and  which  benefit  tourists; 

instruments 

legal 

improving  consumer  protection  at 

the  definition  of  a  new  action  plan13  identifying  targeted  priorities  in  consumer 
policy  over  the  period  1996-1998;  even  if  the  plan  does  not  specifically  identify 
tourists  as  such  as  a  priority  category  its  implementation  will  ensure  more 
effective  tourist  protection,  insofar  as  its  implementation  is  likely  to  touch  on 
major  concerns  of tourists. 

; Regarding  information,  three  complementary  instruments  have  been  finalised  in  1996.  Within 
| the  framework  of the  Community  Action  Plan  to  assist  tourism  an  electronic  guide  relating  to 
facilities  available to tourists in Europe has been distributed to many associations and  enterprises 
I concerned.  Following  the  initiative  "Citizens  first"  launched  in  Î996,  in  order  to  better  inform 
European  citizens  of  their  rights  under  the  single  market,  a  user-friendly  brochure  devoted  to j 
"Travel  in  another  country  of  the  European  Union"  will  be  made  available  in  all  official j 
languages and widely disseminated  in  1997. Under the 2nd  Consumer  Policy  programme,  a  newj 
j edition  of the  European  Consumer  guide  has  been  published,  which  includes  a  specific  chapter j 
j 
jon tourists' rights;  an updated version of the guide will  be made available  in  1997. 

I As  regards  assessment  of  problems  involving  tourists'  interests,  the  Commission  is  evaluating 
khe  results  of  the  studies  carried  out  on  the  implementation  of  the  package  travel  Directive,  on 
! fire  security  in hotels and  similar establishments, and on overbooking  in hotels, the  latter  carried 
( 
j out within the framework  of the Tourism  Action  Plan. 

i 
[Relevant  legislation  introduced  in the framework  of Consumer  policy and which  is of  interest  tc 
\tourists,  include  measures  for  improving  information  to  be  provided  in  the  case  of  "Distance, 

12 
13 

OJEC n° L164 of 14.7.95, p.l; OJEC n° L 234 of 3.10.95, p.l, 
COM (95) 519 of 31.10.1995 

selling" contracts - following  the Directive finally  adopted  in  199714 on this specific  form  of sale 
-  and  provisions  for  simplifying  procedures  on  access  to justice  and  settlement  of  individual 
consumer disputes by way of conciliation. 

The  general  commitment  of  the  Commission  to  ensure  a  better  integration  of  consumer 
policy  into  other  Community  policies,  as  well  as  the  recognition  of  the  need  to  improve 
internal  co-ordination  with  regard  to  Community  measures  affecting  tourism,  should 
contribute  towards  more  effective  protection  of  tourists  in  Europe  and  of  European 
citizens travelling  abroad. 

2.3  Facilitating  access  to  tourism  for certain  groups  of the  population 

Psychological  and  physical  barriers,  which  make  it  more  difficult  to  travel  and  take 
holidays  in  the  case  of  persons  concerned,  are  factors  which  can  compromise  full 
integration  and  participation  of  these  citizens.  The  disabled  and  the  elderly,  who  often 
suffer  from 
reduced  mobility,  and  which  represent  a  significant  part  of  both  the  EU 
population  and  of  visitors  from  third  countries  fall  into  this  category.  Persons  with 
disabilities  of  one  type  or  another  in  the  EU  are  reckoned  to  account  for  upwards  of  10% 
of  the  population15,  and  to  represent  potential  demand  for  commercial  tourism  related 
accommodation  estimated  at  350  million  nights  accommodation16.  The  part  of  the 
population  over  65 years  is increasing  rapidly  and  is especially  important  to tourism  from 
the  point  of  view  of  time  available  for  leisure  all  year  round; 
this  category  represents 
16%  of  the  total  EU  population  and  it  is  expected  to  increase  by  a  further  5%  or  61 
million  by the  year  200017. 

the  Commission  completed 

Against  this  background  and  bearing  in  mind  the  importance  of  the  various  segments  of 
tourism  demand, 
in  1996  an  assessment  of  basic 
requirements  and  best  practices  with  regard  to  the  production,  marketing  and  supply  of 
tourist  services  to  people  with  disabilities  and  to  senior  citizens.  The  joint  work 
undertaken  by  the  competent  Commission  Services  has  helped  to  develop  the  necessary 
synergy  in  the  exercise  of  the  Community  instruments  available;  the  direct  implication 
of  public  authorities,  and  of  the  main  European  and  national  associations  active  on  these 
issues,  has  helped  to  consolidate  the  co-operation  process  at  a  European  level.  This 
avoids  overlapping  of  initiatives  and  helps  identify  best  practices  in  the  interest  of 
tourists. 

The  main  actions  finalised  in  the  framework  of  the  Community  Action  Plan  to  assist  tourism, 
include  two  guides,  one  on  special  assistance  and  dedicated  services  available  for  tourists  with 
disabilities  in the  EU and  EFTA  countries18,  and  the  second  on  good  practices to  be  considered 
by  tourism  operators  for  meeting  the  basic  requirements  of  the  disabled  when  organising  and 
taking  holidays19.  With  regard  to  senior  citizens,  an  analysis  of trends,  needs  and  behaviour  of 

14 
15 
16 

17 
18 
19 

European  Parliament and Council  Directive 97/7/EC of 20.1.1997. 
Eurostat, Statistics  in Focus, Disabled persons:statistical  data,  1995/10,  Luxembourg. 
European  Commission,  Making Europe accessible for tourists with disabilities, OOPEC, 
Luxembourg,  1996 
Eurostat, Yearbook  1996, OOPEC, Luxembourg,  1996. 
European  Commission, Travel Guides for disabled travellers ( to be made available in  1997). 
European  Commission, Making Europe accessible for tourists with disabilities, OOPEC, 
Luxembourg,  1996 

this  category  has  been  developed  in  a  report  supported  by  the  Commission  and  available  to 
interested  parties20. 

fn the context of social  policy and of transport policy, the actions carried  out in favour  of tourists 
with  disabilities  have  permitted,  on  the  one  hand,  to  explore  the  question  of  training  measures 
for  tourism  professionals  and  of  specific  accommodation  facilities  and,  on  the  other  hand,  to 
progress the work of defining  the technical  requirements  for  facilitating  accessibility  to  different 
modes of transports. 

The  wide  dissemination  of results  of the work  achieved  will  contribute  to  raise  awareness 
of  the  specific  needs  of  the  elderly  and  of  tourists  with  disabilities.  The  growing 
awareness  of  these  issues  by  the  tourism  industry,  supplemented  by  greater  attention 
given  to  these  issues  at  national  and  local  level,  will  contribute  towards  a  situation  of 
equality  of opportunities  for  persons  often  denied  access  to tourism  facilities  in  the  past. 

2.4 

Encouraging  responsibility  - combating  child  sex  tourism 

1996  was  a  year  in  which  the  awareness  of the  problem  of  child  sex  tourism  came  to  the 
fore  among  European  public  opinion,  tourists  and  the  tourist  industry  in  particular. 
Recognising  the  many  dimensions  of  the  problem  and  that  co-ordinated  action  must  be 
taken  to  discourage  this  phenomenon,  led  the  Commission  to  adopt  a  communication  on 
combating  child  sex  tourism  in  November  199621.  The  communication  provides  a 
reference  framework  for  Community  action  in this  field,  placing  it  in  a medium  and  long 
term  perspective,  with  the  emphasis  on  a  limited  number  of  targeted  objectives.  The 
comprehensive  set  of proposals  for  action  included  in the  communication  are  designed  to 
help  deter  and  punish  child  sex  abusers,  stem  the  flow  of  sex  tourists  from  Europe,  help 
to  combat  sex  tourism  in  third  countries  and  encourage  Member  States  to  take  a  united 
stand  against  child  sex  tourism.  The  approach  set  out  is  based  on  reinforcement  of 
consultation  and  concertation,  involving  the  member  States, the  tourism  industry  and  the 
non-governmental  organisations  principally  concerned. 

3. 

R E I N F O R C I NG  T HE  C O M P E T I T I V E N E SS  OF  T HE  E U R O P E AN 
T O U R I SM  I N D U S T RY 

Rapid  changes  in  the  world  economic  environment  and  greater  internationalisation  of 
both  demand  and  supply  of  services  are  having  a  significant  impact  on  tourism-related 
activities,  in  particular  in  Europe,  which  continues  to  represent  the  driving  force  of 
tourism  world-wide.  However,  the  traditional  leadership  of  European  tourism,  built 
mainly  on  the  diversity  of  its  business  activities  and  on  the  richness  of  its  attractions, 
cannot  be taken  for  granted. 

The  combination  of  increasing  challenges  in  the  form  of  increased  competition  among 
the  opportunities  offered  by  expanding  segments  of  demand, 
tourist  destinations, 
coupled  with  greater  expectations  on  the  part  of  customers,  require  adjustments 
to 
tourism  development  strategies  as  far  as  the  conception,  production,  marketing  and 
provisions  of  tourist  services  are  concerned.  The  effectiveness  of  these  adjustments 
depends  on  the  dynamism  and  efficiency  of  tourism  enterprises  and  also  on  a  wide  range 

ÎQ 
11 

ÂIT-FIA, La mobilité et les personnes âgées, Brussels,  1995 
COM(96) 547 Final of 27.11.1996 

of  other  activities  which  have  a  direct  impact  on  the  success  of  the  tourism  industry, 
without necessarily being part of the industry. 

Bearing  in mind  the  significant  contribution  of tourism  activities  to the EU  economy  in 
terms  of  GDP  (5.5%),  of  employment  (6%  of  total  employment),  and  of  foreign  trade 
(about  1/3  of trade  in  services), there  is a continual  need  to promote  the conditions  for  a 
favourable  economic environment in which European tourism can develop. 

Within  the  framework  of  Community  programmes  and  policies  four  main  aspects  have 
been  considered  central  to  improving  the  competitiveness  of  the  European  tourism 
industry and ensuring its development: 

fair competition among tourism  enterprises; 
the  modernisation  of  the  tourism  industry,  and  improving  quality  of  tourist 
services through the training and qualification  of the  workforce; 
tourism development in less developed areas of the Union; 
encouraging quality-led tourism policies in third country partners. 

3.1 

Stimulating a favourable  environment  for tourism business 

The  effectiveness  of  the  tourism  market  mechanism  depends  on  the  application  of  the 
single  market,  the respect  of competition  policy,  and  on better  knowledge  of the  market 
structure and  its evolution;  more generally  a "business-friendly"  legislative  environment 
is also essential. 

The structural characteristics and demography  of the tourism industry make it particularly 
sensitive  to  full  implementation  of  the  requirements  of  the  single  market  and  of 
competition  policy.  The tourism industry  involves  a wide range  of activities  and  several 
different  branches,  covering  businesses  which  include  a. limited  number  of  very  large 
multinational  companies  together  with  a  very  large  number  of  Small  and  Medium-size 
Enterprises (SMEs);  all parts  of the  industry  must  be familiar  with the various  segments 
of  rapidly  -evolving  demand,  which  is  influenced  by  several  external  and  unpredictable 
factors.  The  need  for  reliable  information  explains  the  particular  attention  given  by  the 
Community  to  the  development  of  a  European  statistical  system  on  tourism,  which  can 
help  decision-makers  to  better  define  their  market  strategies  and  to  assess  their 
psrto nuance. 

In  the  case,  for  example,  of  the 
The  preponderance  of  SMEs  in  tourism  is  evident. 
"HoReCtd  mzioi 
(covering  hotels  and  other  lodging  accommodation,  restaurants, 
canteens  imâ catering),  which  accounts  for  more  than  1.3 million  enterprises  in  the  EU 
{about  8.5% of the  total) and  generating  5.2% of total  employment  and 269 billion  ECU 
in  turnover,  half  of  the  5.3  million  persons  employed  work  in  small  businesses  (1  to  9 
employees),  a  further  1:5%  are  "one-mar."  enterprises,  and  some  10%  of  persons 
employed  work  in  large  enterprises  (more  then  250  employees)22.  The  importance  of 
large  HoReCa  enterprises  in employment  is  especially  significant  in  some  countries,  for 
example  twice  as much  in the  case  of France  and  three times  in  the case of Finland,  the 

European  Commission,  Enterprises  in Europe - Fourth  report, OOPEC, Luxembourg,  1996 

European.  Union  average; 
impcrtarxe of large enterpriser  is bedew the I.LU average. 

in  other  kfenfoe;.  Etales:  (Gc-tttiFJiy.  Cpcdn.  itph) xhr-

As  regards  international  comparison,  in  the  case  of  the  I «'£/*. ar.o  Jacar  die  process  of 
restructuring,  which  is  stimulated  arguai;';•  by  a. mere  favourable  business  eindromnent, 
has taken place earlier than. in. Europe;  in (here oases the ii:r.?cr.ri.c <: of r;nad  business in 
ternir, of  employment  is  on  average  fou;,  times  less  signifiea;:.t  in  lapa.t;  and  afout  three 
times less in the US than in Europe. 

An  analysis*  of  the  creatior  of  new  em:ewrites23.  while  not  o w w ^ we  in  terms  of 
coverage  of  ail  Member  Stales»  confirms  dw  potential  and  Ike  dynamism  of  tourism-
related  enterprises:  half  of  one  million  nevcy  created  fmr.s  in  AS'92 'wre  in. die  Trade 
and  IioP.eCa  sectors,  in  countries  such  as  rrarce  and  the  kfrlbTrkiKjS.  riiî  survival  late 
after  five  years  of activity  in the HcReCa  seetca  is respectively  dlnc  and  eidf:.  virion  is 
rcenerally fairly  typical  of small  firm P. 

Ilcceiit  analysis  confirms?  thai \he  full  milisation  of  Community  instrirrents  haï  positive 
effects  on  the  competitiveness  of  basinets,  en  employ mem.  arc  on  the  economy  in 
general24.  On  die corirar;,  a conservative  anpmaeh  tmvaras  mamtmrirp  barrier:? to  non 
resident  operators  and  unjustified  projeclicnkt  measures  vend 
frusvaiv  nem 
entrepieneuriai  initiatives and put a brake en burines: s <i y 11 ami am. 

te 

In  parallel  with  the  improved  application  of  the  single  market  and  ccmpetidGn  iules, 
positive results  can he expected for tourism  enterprises  follo'-vini;  die  launch of a ranpe  of 
actions  at  Community  level  devoted  to  imp:*cv:ro  the  ermpeddveness  of  Imropean 
enterprises,  Eramphs  are  to  be  found,  in  the  rnnplijieation  of  adi ni nistmhve  procedures 
and  legislation, the arrangements for assistmr  business to mane  best  \i^^ of  opportunities 
such  as the network  of  "Euro-info  cenlmsd  or dr  stimulating  business  co-operation  and 
internationalisation  (such as "PC-NET" and  "bkRE/'). These  instruments are bedrp used to 
a  gmvring  extent  (for  example  575  business  pre nies  for  the  HoReCa  rector  ale ne  have 
been  introduced  via  the  ERE  network  in  iSS'5-9c  for  the  purpose  of  research; np  a 
partner),  and  the  implementation  of  the  Third  Mulfiannua.!  Programme  for  SI-dEs25 
adopted  in. 1996 and  covering the period  Î v9?-2000 will vvovic^  further  opportunities  for 
tourism-based  S M Es. 

Transport  is an  importait'., area  of activity  which  influences  tourism  development  and  the 
competitiveness  in  tourism.  Significant  progress  has  been  made  at  Community  level  in 
1 c95/96 towards the implementation  of important objectives in this area.  Despite the fact; 
that  the  majority  cf  tourists  continue  to  prefe;  the  car  as  their  main  mode  of  travel,  the 
growing  importance  of air transport, especially for international  tourists, has been  directly 
influenced  by  the  progressive  implementation  of  the  liberalisation  measures  applied  by 
the  Community,  and  which  entered  their  final  phase  from  1 April  1997.  Liberalisation 
has  already  created  increased  opportunities  for  European  travellers  in  terms  of  better 
connections,  greater  choice  and 
lower  fares.  As  an  illustration  of  this,  the  production 
capacity  of the Community  air traffic  market  (seats offered  per  KM)  reached  370  billion 

23 
24 

25 

ibidem 
Communication  from  the Commission to the European  Parliament and the Council  on the  impact 
and effectiveness  of the Single Market. CCM(96) 520 final of 30.10.1996 
J C L 6 of  10.1.1997, p.25 

10 

in  1995,  of  which  more  than  half  (56%)  is  managed  by  charter  companies26.  The 
proportion  of  air  passengers  travelling  with  reduced  ticket  prices  on  regular  flights  has 
increased  from  60.5% in  1985  to  70.9%  in  1995;  when  charter  passengers  are  included 
the  share  represented  by  reduced  prices  is between  90% and  95% of the total  market.  The 
problem  of  air  traffic  congestion  and  delays27,  which  was  the  subject  of a  White  Paper  in 
March  1996, compromises  the  efficiency  of the  European  air transport  system  and  causes 
the  revision  of  the  provisions  governing  the  Code  of 
serious  difficulties  for  tourists; 
Conduct  on  Computer  Reservation  Systems  (CRSs^  should  help  to  bring  about  greater 
transparency  and  effectiveness  to  the  systems  through  which  most  air  booking  is  made. 
CRSs  play  a  fundamental  role  in  the  tourism  industry  and,  with  the  diffusion  of  internet 
based  services  and  applications  (e.g.  World  Wide  Web),  industry  is  now  undergoing 
radical  changes.  By  2005  it  is  expected  that  30%  of  the  tourism-related  information  and 
20%  of commerce  will  pass through  Internet. 

The  adoption  of  Community  guidelines  for  the  development  of  the  Trans-European 
networks  and  of  several  measures  devoted  to  improving  safety  in  different  means  of 
transport,  will  contribute  to  a 
safer  and  more  comprehensive  system  of  mobility  in 
Europe,  as  well  as  bringing  many  European  tourist  destinations  within  easy  reach  of 
greater numbers  of  people. 

The  significant  volume  of transfrontier  commercial  transactions  and  payments  for  tourist 
services  gives  rise  to  a particular  interest  for  the  tourism  industry  in  progress  being  made 
in  the  preparations  for  the  changeover  to  the  European  Single  Currency  (EURO).  The 
tourism  industry  and  tourists  are  important  targets  in  the  general  campaign  launched  by 
the  Commission  with  a view  to  increasing  the  awareness  of  enterprises  and  of  citizens  of 
the  practical  aspects  of  the  introduction  of  the  EURO.  Representatives  of  the  main 
tourism-related  sectors  are  part  of  the  Round  Table  established  by  the  Commission  for 
this purpose.  Moreover,  it is intended  to launch  a  study  on  the  specific  tourism  aspects  in 
1997. 

Efforts  made  in  recent  years  to  improve  statistical  information  related  to  tourism  have  been 
consolidated  with  the  adoption  by the  Council  of  Directive  95/57/EC  on  tourism  statistics28.  Its 
implementation  started  already  in  1996,  with  the  aid  of  financial  assistance  from 
the 
Commission.  Preliminary  results were made available  to tourism  operators  in  1996 and  in  1997, 
by  way  of  new  publications  presenting  key  figures  on  European  tourism.  Assistance  is  being 
provided  also to third  countries  in Central  and  Eastern  Europe  and  in the  Mediterranean  region 
with  a  view  to  extending  the  European  system  to  them.  Improving  knowledge  of  tourism  was 
also the aim  of specific  studies  undertaken  within  the framework  of the Tourism  Action  Plan, in 
particular  on  business  and  conference  tourism  and  yield  management  in  tourism  SMEs.  The 
dissemination  of the results began  in  1996, notably  in the context of work-shops and  conferences 
involving the participation  of industry  representatives. 

As part  of  its work  in monitoring  the  implementation  of the  single  market,  the Commission  has 
been  addressing  the  question  of tourist  guides and  tour  managers  professions;  the  respect  of the 

26 

27 

28 

Communication  from  the Commission  to the European  Parliament and the Council on the  impact 
of the Third package of liberalisation  measures of air transport, COM(96) 514 final of 
23.10.1996. 
COM(95) 318 and White paper on air traffic  management "Freeing  Europe's Airspace" of 
6.3.1996. 
OJ L 291 of 6.12.1995, p.32 

11 

right  of  establishment  as  hotel  manager  has  also  been  considered  and  a  motivated  opinion  has' 
been  addressed  to a Member  State considered  to be  in breach  of the rules. As far  as  competition 
policy  is  concerned,  several  cases  regarding  tourism-related  activities  have  been  examined  and 
accepted  by  the  Commission  in  the  framework  of  the  state  aids  regime  and  of  the  control  of 
mergers and acquisitions. 

As  regards  direct  taxation  there  is  a  need  for  greater  transparency  and  cc-operation  between 
Member  States, notably  regarding  tourism-related  services which  are  often  treated  differently z± 
the  national  level.  The  development  of a general  tax  framework  envisaged  by  the  Commission 
in  its  1996 report,  which  reviews  tax  systems  in the  Member  States, could  lead  to  opportunities 
for  developing  enterprise  and  job  creation  in  tourism.  With  regard  to  indirect  taxation,  VAT 
applicable  to  tourism-related  services,  and  the  future  of  duty-free  sales  are  the  main  issues  on 
which  concern  has been  expressed  by the tourism  industry.  With  regard to duty-free  scdes which 
are  not  compatible  with  the  principles  of  the  Single  Market,  both  the  Commission.  ?.nd  the 
Council  have confirmed  the deadline of  1999 for the end of the transitional  period, thus  avoiding 
further  distorsion  of  competition  vis-à-vis  businesses  selling  goods  tax-paid,  and  between 
different  means  of  transport.  Regarding  VAT,  in  the  framework  of  the  foilov-up  to  the 
programme  set up by the Commission  in  1996 on a common  VAT system  and a timetable  for  the 
presentation  of  formal  proposals  to  introduce  this  system,  there  will  be  specific  opportunities  to 
allow the tourism  industry to state  its opinion.  The Council  decision  in  1996 on the  standard  rate 
of VAT should  help to reduce existing disparities  in relation to the treatment  of tourism  services. 

Despite  much  progress,  there  is  still  a certain  lack  of  awareness  of  business  in  relation  to 
European  Community  opportunities  provided  at  Community  level  and  insufficient  co 
operation  and  consultation  between  all  the  parties  concerned  at  the  local,  regional, 
national  and  European  levels.  The  Commission's  proposal  of  April  1996  on  the  First 
Multiannual  Programme 
still  under 
to  Assist  European  Tourism 
examination  of the  Council,  envisages  a coherent  framework  within  which  measures  ma}' 
be  taken  to  help  overcome  this  situation.  In  the  meantime,  efforts  will  continue  in  order 
to  stimulate  a  better  environment  for  tourism  by  identifying  some  of  the  more  important 
problems  and  opportunities  to  be faced  by the tourism  industry. 

"Philoxenia", 

3.2  Fostering the  modernisation  of the  tourism  industry 

Up-grading  human  resources  and  techniques  as  well  as  improving  management  skills  are 
basic  requirements  for  speeding  up  the  process  of  modernisation  of  the  tourism  industry 
in  Europe;  this  is all the  more  important  in that  tourism  is acknowledged  as  among  those 
offering  the best prospects  for  growth  and job  creation29. 

This  process, already  well  advanced  in  the  main  EU  competitor  tourism  markets,  is  being 
implemented  more  gradually  in  Europe;  many  tourism  enterprises,  especially  SMEs, 
in  respect  of  education  and 
have  difficulties 
vocational  training  on  the  one  hand,  and  technological  innovation  on  the other  hand. 

in  overcoming  structural  deficiencies 

Tourism-related  activities,  generally  considered  capable  of  regular  growth  and  of  high 
levels  of  employment,  have  confirmed  this  potential  over  many  years.  The  skills  of  the 

29 

CSE(96) 6 final  of 27 November  1996, Communication  from  the Commission  to the European 
Council, "Putting services to work"; WTTC, Travel  and Tourism  - Jobs for the millennium, 
London,  1997. 

12 

workforce  do  need,  nevertheless,  to  be  improved.  In  the  case  of  hotel,  restaurant  and 
catering activities, where educational  attainment  levels are significantly  below  average in 
all  Member  States,  54%  of  those  employed  in  1995  had  not  progressed  beyond  basic 
schooling and only 7% had university  degrees or the equivalent.  The sector has registered 
the  highest  unemployment  and  long-term  unemployment  rate  for  woman  (18%) and  the 
second  highest  for  men  (15%)30. The  contrast  between  the  positive  growth  rates  of  the 
sector  and  the  high  unemployment  rate  registered  might  be  explained  by  the  high  turn 
over of persons employed  in the HoReCa  sector.  This could  arise  from  the fact  that  this 
sector  is  often  considered  as  transitional  by job-seekers  and  the  fact  that  many  tourist-
related  activities  are seasonal.  Tourism  due to its structural  conditions, has been  among 
the  first  sectors  to  experiment  with  various  forms  of  flexibility  in  the  labour  market; 
nevertheless it has proved very difficult  to reduce precarity  in employment  or to limit the 
effect  of seasonality on the professional  carreers of employees. 

These  problems  have  been  addressed  by  representatives  of  employers  and  employees  of 
the  HoReCa  sector both  in the framework  of the social  dialogue  platform  and  by  way  of 
several  projects  presented  by  tourism  operators  and  supported  by  the  Commission  in 
1995  and  1996  which  are  within  the  framework  of  improved  Community  measures  to 
encourage  the  employment  and  development  of  human  resources.  The  main  principle 
underpinning  many  of  the  projects  concerned  is  the  development  of  trans-national  co 
operation  among  public  authorities,  the  industry,  and  education  and  vocational  training 
institutes.  This  approach  should  facilitate  the  exchange  and  development  of  best 
practices,  thereby  helping  to  overcome  deficiencies  of  knowledge  and  of  experience  on 
several aspects of tourism activities. 

As an example of what can be achieved, encouraging  results have been recorded  through 
the progressive use by tourism business of the European Employment  Services (EURES), 
which  was  established  by  the  Commission  in  co-operation  with  the  public  employment 
services  of  the  European  Economic  Area,  with  a  view  to  facilitating  worker  mobility 
among participating countries. 

The  application  of  technological  development  to tourism  services  - information  oriented 
by  the  nature  of  their  business  -  is  also  an  important  area  of  activity.  The  situation  in 
Europe,  while  improving,  falls  short  of  the  progress  achieved  in  other  major  markets 
such  as  the  United  States.  The  sale  of  on-line  travel  services  is  considered  a  major 
success in the US market where they account for more than half of electronic commerce31 
and have expanded the turnover from  142 million dollars  in  1994 to 600 million in  1996; 
a turnover  of 3 billion dollars is estimated  for  the year 200032. In the US more than 70% 
of hotel  reservations  are made  through  a central  reservation  system  to which  the hotel  is 
linked; by contrast to the case of France, a leader in  Europe in this field, the largest hotel 
groups  which  are  linked  to  an  international  reservation  system  attract  only  8 to  10% of 
their 
traveller 
information  systems  which  combine  tourism,  culture  and  leisure  information  with  travel 
and  mobility  information  aspects  are  appearing  in the marketplace.  These  open-systems 
could  support  a better  approach  to mobility  and  a more rational  use of tourist  resources. 
In this context new challenges and opportunities  will  also arise for the European  tourism 

the  system33.  Internet-based 

total  reservations 

integrated 

through 

30 
31 
32 
33 

European  Commission,  Employment  in Europe -  1996, OOPEC, Luxembourg,  1996 
Forrester Research  consultants. 
"Les nouvelles technologies", Cahier Espaces n° 50, p.5 i, Paris, 1997 
ibidem, p. 10. 

13 

industry,  especially  for  SMEs;  peripheral  and  less  known  tourist  destinations  can  now 
count  on  a  new  ally  to  improve  marketing  and  management  of  tourist  services.  Delay  in 
availing  of  up  to  date  technological  facilities  will  deprive  European  enterprises  of 
opportunities  for  further  market  expansion  and  could  in  some  cases  compromise  existing 
markets.  Research  in  several  scientific  fields  are  still  needed  (e.g.  multilingual  aspects, 
search  methods,  user  interface,  business  process).  SMEs,  which  have  a  limited  capacity 
to  invest  in  innovation,  will  need  training  courses,  support  for  learning  best  business 
practice  in  the  new  electronic  environment,  transfer  of  knowledge  about  telematics 
opportunities,  development  of common  procedures  and  protocols. This  is an  aspect  which 
the  Commission  is  taking  into  account  in  the  development  of  relevant  Community 
Programmes. 

Conscious  of  the  strategic  influence  of  new  technologies  on  the  competitiveness  of  the 
European  tourism  industry,  between  1994  and  1996,  some  31.8  million  ECU  has  been 
allocated  for  new  technology  applications  for  tourism  services  within  the  4th  Framework 
programme  for  Research,  technological  development  and  demonstration  activities,  in 
particular  under  the  "IMPACT  II"  and  "Telematics"  programmes.  Most  of  the  selected 
projects,  developed  in  partnership  with  tourism  operators  and  specialised  firms  across 
several  Member  States, have  focused  on  the  development  of  information-tools  for  SMEs 
and  for  tourists  capable  of  appreciating  and  promoting  natural,  cultural  and  other  tourist 
attractions, and  facilitating  sustainable  use of tourist  facilities  and  of natural  resources. 

Consultation  and  concertation  at Community  level  between  the  social  partners  representing  the 
HoReCa  sector  have  progressed  within  the  framework  of  the  Social  Dialogue  Committee 
focusing  in  particular  on  the  problems  linked  to  professional  profiles,  worker  mobility,  and 
working conditions. 

For  the  purpose  of  implementing  the  Community  initiative  "Employment  and  development  of 
human  resources" (1994-1999), rural tourism  as a source of employment  has been  considered  in 
one of the networks established  for  local employment development  actions. Under the  European 
| Employment  Services  programme  (EURES), a  network  of 450  advisers  provides  assistance  and 
guidance  to  workers  on  work  availability  and  social  security  rights.  The  specific  section  of  the 
job  vacancy  data  base  devoted  to  tourism,  which  is  part  of  the  programme,  has  been  often 
| solicited  for  the research  of workers  in the  HoReCa  sector  and  in well  established  tourist  theme 
parks.  Another  example  is  the  seasonal  placement  project  for  hotels  and  guesthouses  in  the 
(regions  of  South  Bavaria  and  Baden  Wurttemberg,  co-ordinated  by  EURES  and  the  German 
\3undesanstalt fur  Arbeit,  which creates an opportunity to place 260 Irish workers every year. 

t Under  the  renewed  Community  programmes  Socrates34  and  Leonardo35  (1995-1999),  over  the 
'first  two  years  of  implementation  support  has  been  provided  for  16  projects  in  the  field  of 
\tourism,  catering  and  hotel  management  aimed  at  curricula  development,  teaching  staff  and 
! student  mobility,  and  for  40  projects  dealing  with  the  analysis  and  development  of  vocational 
training methods and activities  in tourism  professions,  as well as trainee exchanges. 

[Under  the  ESPRIT  III  programme,  where  the  development  of  computerised  and  multimedia-
tourism  oriented  tools  have  been  supported,  and  within  the  framework  of  the  various  sectorial 
t applications  of TELEMATICS, projects  have also  been  supported  in relation  to the  provision  of 
I information  on tourism  facilities, and on cultural attractions and events. 

34 

35 

Decision  No. 819/95/EC of the European  Parliament and the Council. OJ No. L C7 of 
20.4.1995, p. 10 
Council  Decision  No. 94/819/EC OJ No. L 340 of 29.12.1994, p.8 

14 

The  focus  at  Community  level  on  developing  instruments  for  the  effective  monitoring 
and  evaluation  of  employment  and  labour  market  policies,  and  on  establishing 
employment  and  innovation  as key  priorities  for  Europe  will  be  of particular  interest  to 
the  tourism  industry.  The  Commission  will  support  the  activity  of  the  social  partners 
meeting  in  the  context  of  the  European  social  dialogue  with  the  aim  of  promoting 
integration  of  the  human  factor  as  an  indispensable  element  in  the  development  of 
tourism. 

3.3. Stimulating tourism development in less developed areas 

The  recognition  of  tourism's  contribution  to  economic  growth  and  to  employment  is 
reflected  in  the  increased  interest  of  Member  States  and  of  the  Community  in  better 
exploiting  its potential, especially  in the  less developed  areas. The  reduction  of  regional 
disparities  is  essential  to  ensure  balanced  economic  development  and  to  encourage  the 
changes  required  throughout  the  Community  in  order  to  adapt  to  the  requirements  for 
successful  participation  in  the  Single  Market.  European  structural  policies  are  a  key 
instrument  in this  process  and tourism  is an activity  covered  by  most  of the  operational 
programmes of the Member States. 

The  interlinkage  between  tourism  and  regional  development  is evident  as  shown  by  the 
number  of  measures  (some  300  up  to  1996)  supported  under  the  Structural  Fund 
programmes  and  Community  Initiatives, which  specifically  identify  tourism  as a  subject 
for  action.  Most  measures  relate  to  infrastructure,  human  resources  and  to  productive 
investments.  The  Structural  Funds  also  contribute  to  the  development  of  tourism  in  a 
wider  sense.  In  rural  areas,  for  example,  they  contribute  to  the  preservation  of  the 
countryside,  to  maintaining  local  cultural  traditions  and  skills,  to  the  restoraion  of 
villages  - all  important  factors  in  increasing  the attractiveness  of  Europe's  rural  areas  to 
visitors  -  as  well  as  to  the  development  of  newer  rural  tourism  markets  such  as  "eco-
tourism",  "sport  tourism",  etc.  The  main  objectives  of  the  operational  programmes 
established in partnership between the member States and the Commission aim at: 

• 
• 
« 
» 

improving tourist accommodation, facilities  and attractions; 
developing tourism related enterprises; 
upgrading professional  qualifications  and management resources in tourism; 
stimulating the tourism product and market development. 

The  breakdown  of  the  amount  made  available  by  the  Community  for  tourism  related 
measures under the structural funds  is estimated as follows: 

•  5850  million  ECU,  for  the  period  1994-1999,  is  available  in  regions  whose 
development  is  lagging  behind  (Objective  1) and  in regions  of  northern  Europe  with 
sparse populations (Objective 6); 

•  600  million  ECU,  mainly  for  the  period  1994-1996,  is  available  for  measures  in 

regions worst affected  by industrial decline (Objective 2); 

•  800  million  ECU,  for  the  period  1994-1997,  is  available  for  measures  in  designated 

rural areas (Objective 5b). 

15 

The  overall  effort  is  greater  than  the  sums  indicated  might  suggest  as they  do  not  include 
measures  which  at this  stage are  not  directly  identifiable  in respect  of tourism.  This  is  the 
case  also  for  assistance  which  can  be  provided  to  farmers  for  diversification  into  tourism 
under  objective  5a;  and,  more  generally,  for  additional  resources  from  public  and  private 
sources  which  in most  cases complement  the Community  contribution. 

Tourism  projects  have  also  been  supported  under  the  Structural  Funds  within  the 
framework  of the Community  Initiatives  launched  by the Commission  in partnership  with 
the  Member  States; 
these  include  actions  designed  to  encourage  local  development  in 
particular  areas  of  the  Community,  as  for  rural  areas  under  LEADER  II,  the  SME 
Initiative,  as  well  as  measures  designed  to  encourage  cross-border  and  inter-regional  co 
operation. 

Tourism  related projects  supported  in the framework  of Community  initiatives, concern: 

local development  in rural areas ("LEADER  II"), where almost all of the 98  programmes 
approved,  up to  1996,  include  measures  to  assist  tourism  activities;  it  is estimated  that 
some 40% of funds  available (Community  contribution  1.755 billion  ECU for the period 
1994-1999)  will  be  made  available  for  actions  concerning  the  development  of  rural 
tourism; 

transborder  and  interregional  co-operation  ("INTERREG  II"), for  example  five  tourism 
oriented  projects  involving  in  particular  Germany,  Denmark,  Luxembourg  and  Greece 
for which  68.7 million  ECU have been made available; 

economies  of  the  remote  regions,  most  of  which  have  a  dependence  on  tourism 
activities,  so  as  to  strengthen  their  integration  with  the  rest  of  the  Union;  one  such 
project,  financed  for an amount of 29.5 MECU, concerns the Canary Islands; 

local  development  in  areas  depending  on  fishing  ("PESCA"),  contributing  to  reconvert 
human  resources, and  diversification/reconversion  of activities  in coastal  zones  to  other 
sectors,  including  tourism.  For the  period  1994-99, approximately  a total  of  50  MECU 
(EC  contribution)  have  been  allocated  to  tourism  projects36.  The  United  Kingdom  and 
Germany,  for  example,  have  each  allocated  5 MECU  for  tourism  projects,  while  other 
countries  may  benefit  from  a more  general  PESCA  measure  regarding  "reconversion  to 
other  activities".  In  this  framework  a  transnational  co-operation  project  ("sea  houses" 
network)  has  also  been  supported  involving  Portugal,  Denmark,  France,  the  United 
Kingdom, Italy, Greece, Sweden and  Spain; 

alternative  investments and employment  in areas  hit by the decline of the defence  sector 
("KONVER  II"), where  six  tourism  projects  presented  by  Germany,  France,  Denmark 
and  Belgium,  for  an amount  of 8.1  MECU  have  been  approved;  the  proportion  of  funds 
available  for  use  by  tourism  projects  is  particularly  high  in  the  case  of  the  Wallonia 
region  of  Belgium  (61%);  South  Normandy  in  France  (87%)  and  Saarland  in  Germany 
(62%); 

economic  conversion  of coal-mining  areas ("RECHAR  II"), where eight  tourism-related 
projects  presented by Germany, the United  Kingdom  and  France have been adopted  for a 
total  amount  of  15.9 MECU;  and  economic  conversion  of  areas  affected  by the  decline 
of  the  steel  industry  ("RESIDER  II")  where  six  such  projects  for  an  amount  of  6.8 

36 

Within the  13 programmes of coastal  Member States. 

16 

MECU  concerning  France, the  Netherlands  and  several  regions  in  Germany  have  been 
approved. 

the  process  of  peace  and  reconciliation  in  Northern  Ireland  ("PEACE"),  the  special 
support  programme  agreed  in  1995  includes  a  tourism  project  involving  co-operation 
with  Ireland  for an amount of 49.9 MECU. 

In  June  199537,  the  Commission  presented  its  Communication  on  "a  European  strategy 
for  encouraging  local  development  and  employment  initiatives",  highlighting  both  the 
potential  that  exists  at  local  level  for  the  creation  of  new jobs  and  the  structural  obstacles 
that  have  to  be  removed  in  order  to  ensure  their  development.  The  tourism  sector  was 
identified  as one  of  17 areas offering  untapped job-creation  potential. 

Since  then,  the  question  of  local  employment  development  has  become  a major  theme  in 
the  context  of  Community  action  and  has  been  the  subject  of  numerous  initiatives  not 
only  at  the  political  level  but  also  in  terms  of  assistance  from  the  Community  Structural 
Funds38. 

Following  the  Commission  President's  initiative  aimed  at  establishing  a  European 
Confidence  Pact,  the  Florence  Summit  of  Heads  of  State  and  Government  (June  1996) 
gave  a  favourable  response  to  the  Commission's  suggestion  that  around  sixty  territorial 
employment  pacts  be  launched  by  way  of  experiment.  These  also  related  to  tourism,  and 
would  be  partly  financed  by  exploiting  the  scope  for  manoeuvre  available  within 
structural  policies. 

A  full  analysis  of progress  made towards  achieving  economic  and  social  cohesion  and  on 
the  manner  in  which  the  various  instruments  provided  at  Community 
level  have 
contributed  to  that  goal,  is  developed  in  the  First  Report  on  Economic  and  Social 
Cohesion  adopted  by  the  Commission  in  199639.  In  this context,  examples  of  Community 
financed  tourism-related  activities  are  provided.  While  it  can  be  stated  with  confidence 
that  Community  measures  designed  to  encourage  tourism  have  contributed  significantly 
to economic  and  social  cohesion,  more precise  indications of the  impact  of  such  measures 
are  difficult  to  determine.  There  are  significant  difficulties  in  any  event  evaluating  the 
precise  impact  of  structural  policies,  especially  over  a  relatively  short  time  scale.  An 
evaluation  of  measures  in  terms  of  tourism  is  even  more  problematic  in  the  sense  that 
tourism  comprises  a wide range of economic  activities  and to varying  degrees. 

The  improvement  in  co-operation  with  Member  States  and  in  internal  co-ordination 
within  the  Commission  is essential  for  the  purpose  of proper  assessment  of the  Structural 
Funds  measures,  which  represent  the  main  source  of  assistance  to  tourism  development 
made  available  at  Community 
initiatives  are  certainly  required,  as 
acknowledged  by  the  Commission  and  confirmed  by  the  Court  of  Auditors  in  its  special 
report  on  tourism  adopted  in  199640,  by  the  European  Parliament,  by  the  Economic  and 

level.  Further 

37 
38 
39 

40 

COM(95) 273 final of  13.6.1995 
COM(96)  109 of 20 March  1996, Community  structural  assistance and employment 
European Commission,  First report on Economic and Social Cohesion, OOPEC, Luxembourg, 
1996 
OJC17of  16.1.1997 p. 1 

17 

Social  Committee and by the Committee of the Regions, in the course of resolutions and 
opinions adopted in  1995 and in  199641. 

3.4 

Encouraging tourism development in third country partners 

Recognising the role that tourism can play in the economic and social development of our 
partners  and  in  the  re-enforcement  of  relationships  with  Member  States  tourism  is 
included  among  the  areas  of  co-operation  in  most  of  the  bilateral  and  regional 
agreements  in place, as well as in the Lomé Convention,  whose signatories  now total  70 
African,  Caribbean and Pacific countries. 

The  support  of  the  European  Community  has  taken  various  forms  and  has  involved 
allocation  of significant  levels of funding  in accordance with the priorities established  by 
the beneficiary  countries and agreed by the Union. Examples of actions supported  by the 
Community  in  this  field,  relate  to  the  exchange  of  know-how;  planning  in  tourism 
development;  enhancement  of  training  and  education  systems;  and  development  of 
marketing tools. 

Central and Eastern European countries on the one hand, and Mediterranean countries are 
areas  which  have  received  particular  attention  within  the  framework  of  reinforced  co 
operation with the European Union. 

Progressing the pre-accession  strategy  with a view to the enlargement of the Union  in the 
case  of  the  ten  associated  countries  of  Central  Europe  and  of  Cyprus  is  an  important 
objective.  The  Commission,  in  co-operation  with  the  national  authorities  concerned  is 
evaluating  the  financial  and  legislative  implications  of  the  Community  activity  in  the 
field of tourism.  In the course of on-going  bilateral  meetings  with  tourism  authorities  of 
these  countries,  their  particular  interest  in  Community  actions  relating  to  tourism  has 
been  confirmed.  The  implementation  of  specific  tourism  projects  approved  under  the 
Community programme  "Phare" has also progressed; total  EU funds  of 38.9 MECU  have 
been  made  over the period  1991 to  1995.  Support  has  also been  made  available  within 
the framework  of  1995 Russian Action Programme, with a view to strengthening  training 
and management in tourism skills. 

Following  the  adoption  of  the  Barcelona  Declaration  in  December  1995  and  of  the 
Council  resolution  of  13 May  1996  on  Euro-Mediterranean  co-operation  in  the  field  of 
tourism,  co-operation  in  the  field  of  tourism  statistics  has  been  promoted  by  the 
Commission,  this being  one of the priority  domains  foreseen  by the  Council  and  by  our 
partners.  It  has  not  been  possible  to  take  measures  in  the  two  other  domains,  namely 
training  and  promotion  in  the field of tourism,  but  the  elements  for  a  coherent  working 
programme  of  co-operation  on  tourism,  including  training  and  promotion,  will  be 
explored  in  1997.  The  contribution  which  tourism  and  European  professionals  can 
provide  in the  framework  of  two  of  the  main  axes  of  Euro-Mediterranean  co-operation, 
namely  on  the  economic  and  social  side  as  well  as  on  the  cultural  side,  will  be  further 
considered  and  encouraged  by  the  Commission,  taking  into  account  the  position 

41 

OJ C347 of  18.11.1996, OJ C30 of 30.1.1997, OJ C42 of  10.2.1997 

18 

expressed  by  the  European  Parliament  in  its  Resolution  regarding  the  follow-up  of  the 
Barcelona  Conference42. 

Regarding  the  Lomé  Convention,  with  a  view  to  ensuring  more  effectiveness  in  the 
implementation  of  the  8th  European  Development  Fund  (EDF)  and  to  define  a  more 
coherent  co-operation  strategy  in  the  field  of tourism,  an  analysis  of  achievements  and  of 
the needs  for  future  action  should  be  finalised  by  the end  1997. 

As  far  as  other  regions  are  concerned,  the  Commission  has  noted  the  interest  expressed 
by  several  countries  in  Central  and  Latin  America  and  Asia  in  fostering  co-operation  in 
the  field  of  tourism,  which  can  be  of  mutual  benefit  for  business  in  the  EU  and  in  the 
beneficiary  countries. 

Consistent  with  the  progressive  liberalisation  of  trade  in  tourism-related  services,  the 
enforcement  of  the  General  Agreement  on  Trade  in  Services  (GATS)  which  came  into 
force  on  1995  applies  also  to tourism.  A  large  number  of the  World  Trade  Organisation's 
this  could  lead  to  new 
members  have  made  commitments  under  this  Agreement; 
opportunities  being  opened  to  European  tourism  business  in  providing  services  in  a 
global  market,  in  establishing  a commercial  presence  abroad,  and  in supplying  services  in 
other  countries.  An  assessment  of  the  implementation  of  the  GATS  with  regard  to 
is  the  subject  of 
tourism  and  of  its  implications  for  the  European  tourism  industry 
ongoing  examination. 

[in  the  framework  of  the  Phare  programme,  the  specific  projects  concerning  tourism  cover 
several  years  and  concern  Poland,  Hungary,  Estonia,  Latvia,  Lithuania,  Romania  and  Slovenia; 
they focus  in particular on: 

the  provision  of  technical  assistance  for  the  establishment  of  a  legal  and  institutional 
framework  for tourism; 
training activities for tourism  professionals; 
improvement/establishment  of tourist  information  offices  and of promotional tools; 
credit facilities  for enterprises investing  in the sector. 

!- 

Cross  border  co-operation  projects  on  tourism  have  been  supported  by the  Phare  programme  in 
1995 and  include: 

j 
! - 
; - 
j 

co-operation  between  sea  border  regions  of  Estonia,  Latvia,  Lithuania,  Poland, 
Germany, Denmark, Sweden and  Finland, (1.4 million  ECU); 
co-operation  between  border regions of Hungary and Austria (1.2 million  ECU); 
development  of  a  tourist  border  zone  between  regions  of  Slovenia  and  Austria  (0.45 
million  ECU). 

! 
S Under  the  Tourism  Action  Plan,  six  complementary  projects  encouraging  transnational  co 
operation  on tourism  product  development  and culture and  involving certain  EU Member  States, 
PECO,  Maghreb  countries,  Cyprus  and  Malta,  have  been  supported  in  1995  and  are  due  to 
I terminate  in  1997 (0.8 million  ECU). 
Under  the  financial  instrument  for  the  Euro-Mediterranean  co-operation  ("MEDA"43),  the 
| project  of  co-operation  or\ tourism  statistics  for  the  period  1997-1999  will  benefit  from  an j 

, 

. 

. 

E?, Resolution on the joint report by the Presidency of the Council and the Commission on 
Mediterranean  Policy (EP.257.133 of 13.3.1997). 
Council Regulation  3483/96 of 23.7.1996 (OJ LI89 of 3C.7.1996) 

19 

allocation  of 2.8  MECU.  In the  framework  of the  Middle  Hast "Peace  Process''5 programme, two! 
projects  have  been  financed  in  1995/96.  These  concent  the  establishment  of  a  "University  of 
Tourism  and  Culture  for  Peace",  involving  the  Palestinian  Authority,  Israel,  Morocco,  Algeria, 
Tunisia and France (1.2  MECU); and the creation  in Europe of a branch  of die "Middle East and s 
Mediterranean  Travel Agency and Tourism Association" (0.2 MECU). 

In the  framework  of the  Lomé Convention  and, on the basis  of funds  made available  for  the  6th 
and  7th  European  Development  Fund  (EDF), 27  tourism-related  projects  have  been  financed  in 
1995/96,  for  a  total  amount  of  3.3  MECU  bringing  to  69  MECU  the  allocation  for  tourism 
programmes  over  the  period  1990  to  1996.  The  projects  cever  various  measures  of  assistance 
such as marketing of the destination, training, tourism  planning and product  development. 

The  range  of  instruments  of  co-operation  which  are  being  made  available  at  Community 
level, in  full  respect  for  the needs  of our  third  countries  partners  and  in the mutual  interest 
of  both  parties,  can  help  decision-makers  to  meet  opportunities  and  challenges  in 
evolving  tourism  markets  in  the  interest  of  encouraging  growth  and  employment.  Their 
effectiveness  will  depend  on  sound  management  of  the  resources  available,  of  the 
efficiency  of  the  enterprises  concerned  and  of  the  action  of  public  authorities 
in 
beneficiary  countries  in implementing  a long-term  tourism  development  strategy  which  is 
balanced  and  sustainable. 

4. 

E N C O U R A G I NG  R E S P O N S I B LE  USE  OF  T O U R L SM  R E S O U R C ES 

There  is now  greater  awareness  than  ever  of the  importance  of the responsible  use  of  non 
renewable  resources  and  of  the  need  to  ensure  their  transfer  to  future  generations. 
According  to  the  results  of  a  Eurobarometer  survey  in  1996,  98%  of  the  European 
population  believes  that protecting  the environment  and  fighting  pollution  is a priority  for 
the  Union,  and  most  (82%)  consider  that  the  problem  is  an  immediate  one  requiring 
urgent  attention44.  This  sensitivity  to  the  environment  is  also  'reflected  in  the  public's 
including 
approach 
environmental  conditions,  is  a  factor  which  influences  tourists'  choice  of  a  destination. 
All  branches  of  the  tourism  industry  and  public  authorities  in  the  main  destinations  must 
focus  on  the  problems  linked  with  the  impact  of  tourism  activities  on  resources;  and,  on 
the  positive  side,  it  raises  also  the  question  of  what  tourism  can  bring  by  way  of 
contribution  to  safeguarding  the wealth  of man-made., natural,  and  cultural  resources. 

importance  of  quality, 

to  planning  holidays; 

increasing 

the 

This  direct  link  between  tourism  and  cultural  heritage,  and  the  environment  is  widely 
recognised.  As tourism  depends  on  these  resources  as essential  factors  for  die  production 
and  marketing  of 
leisure  activities  it  represents  an  idea!  test-bed  for  monitoring  the 
implementation  of  the  principle  of  sustainable  development.  Tiie  main  object  of 
Community  activity  in  this  field  has  been  to  stimulate  a  "virtuous  circle"  which  helps  to 
guide 
long-term 
sustainability. 

the  economic  environment 

relationship 

towards 

tourism 

in 

Despite  commendable  efforts  undertaken  by  parts  of  the  tourism  industry  and  by  various 
public  and  private  organisations  and  individuals  in  favour  of  ;our:sm  planning  and 
management,  there  is  scope  for  concerted  actions  which  allow  the  parties  concerned  to 

44 

Eurobarometer,  nc 43.1 bis. June  1996 

20 

explore,  in  a  more  systematic  way,  measures  applied  in  various  Member  States  and 
Regions  with  a  view  to  the  identification  and  dissemination  of  the  best  practices.  Care 
should  be taken  also  to  provide  information  to tourists  and  to tourism  enterprises  on  the 
condition of the environment and of cultural sites in tourist destinations, and to encourage 
them to contribute to environmentally  friendly  use of sensitive resources. 

4.1 Strengthening sustainable tourism  development 

Strengthening  the  quality  of  the  natural  and  man-made  environment  is  central  to  the 
success  of  tourist  destinations  and  business,  and  an  essential  pre-requisite  to  achieving 
sustainable tourism  development. 

Implementation  of the relevant  Community  policies and actions  in  1995/96 has  involved 
continued  efforts  to  integrate  the  principle  of  sustainability  into  tourism  development 
strategies  and practices.  It is appropriate  to  underline that  tourism  is one of the  five  key 
sectors  identified  by  the  Commission  for  integrating  this  principle  into  other  policies. 
Following  an  assessment  of  this  policy45,  Community  activity  has  focused  on  the 
consolidation  of  existing  measures  and  on  the  launch  of  selective  new  legislative  and 
financial  instruments  which  are  of  particular  relevance  to 
tourism  development.  The 
extension of the  "LIFE" instruments  from  1996 to  1999 have provided valuable financial 
support for pilot projects on sustainable tourism development. 

In the  framework  of the  5th  Community  Action  Programme  on the  Environment,  which 
has been  reviewed  in  1996, coastal  zones have been the  subject  of special attention.  The 
object  is  more  effective  systems  of  integrated  management  of  areas  often  faced  with 
serious problems  generated  by tourists  flows,  especially  when concentrated  in space and 
time46.  As  regards  urban  areas,  an  expert  group  set  up  by  the  Commission  has  made 
good progress  in the definition  of policy  options  and  orientations  for  local  development; 
the  object  is  to  combine  the  positive  effects  of  tourist  activities  in  cities  with  the 
safeguard  of their human, cultural  and environmental assets. 

Other measures, more of legislative nature, concern: 

the  proposal  for  a  revision  of  the  Council  Directive  on  Environment  Impact 
Assessment47,  which  includes  tourist  facilities  and  resorts  in  its  field  of 
application; 

the  establishment  of  a  list  of  sites  of  Community  importance  and  of  a  European 
network  of  protected  areas  ("Natura  2000"),  in  which  some  forms  of  "soft 
tourism"  could  be  admitted,  and  which  would  contribute  to  the  protection  and 
management of these sites. 

It  should  be  noted  that  the  structural  funds  can  also  make  a positive  contribution  to  the 
development  of  environmentally  sustainable forms  of tourism, for example in rural  areas 

45 
46 

47 

See progress report from  the Commission  COM(95) 624 final  of  10.01.1996. 
See COM (95) 511 of 31.10.95 and the Council conclusions on integrated management of coastal 
zone adopted on  18.12.95. 
Council  common position  of 25.7.1996 on a Proposal for a Directive amending  Directive 
85/337/EEC. 

21 

^ 
[ 
| 

J 
j 
| 
j 
:| 
| 

where  a  high  quality  natural  environment  is  one  of  the  key  attractions  for  tourists; 
programmes  under  Objective  5(b)  and  the  Community  Initiative  LEADER  II  are 
promoting  actions  which  develop  tourism  in  rural  areas  based  on  learning  about  and 
preserving the natural  environment. 

Complementary  measures  implemented  in  1995-96 in the  framework  of the  Action  Plan 
to  assist  Tourism  have  focused  on  increasing  the  awareness  of  tourism  operators 
to 
environmental  issues,  and  on  encouraging  the  dissemination  of  best  practices  which 
combine  tourism  development  and  sustainability.  The  "European  Prize  for  Tourism  and 
the Environment"  was awarded  for  the first  time  in  1995 following  a competition  among 
269  tourist  destinations  in  the  European  Economic  Area.  This  allowed  several  regions 
and  destinations  to  be  identified  and  recognised  for  their  outstanding  efforts  in  the 
planning,  development  and  management  of  "sustainable tourism".  There  is a  widespread 
interest  in  repeating  this  initiative  as  confirmed  by  the  results  of  the  specific  evaluation 
\carried  out  in respect  of each  phase  of the  Prize.  Within  the  framework  of  the  Tourism 
Action Pian, eight demonstration  projects  focusing  on traffic  and visitor management  and 
on  the  development  of  a  network  on  tourism  and  the  environment  involving  the  main 
actors in this field, were  launched in  1995. The results will be available in  1997. 

4.2. EnlifcLiciitg the partnership  between tourism  and  culture 

European  heritage,  and  more  generally  European  culture,  is rightly  considered  as one of 
the  oldest  and  most  important  generator  of  tourism;  it  continues  to  contribute  to 
the 
attractiveness  of  European  cities  and  regions  for  visitors  from  ail  over  the  world,  and 
highlights  awareness of the European  identity. 

According  to  a  survey  carried  out  at  major  cultural  sites  in  Europe,  60%  of  visitors 
interviewed  are  international  tourists  and  a  further  25%  are  domestic  tourists48.The 
attraction  of  heritage  has  been  a major  factor  in  tourism  expansion  in  several  European 
destinations  and  has  influenced  the  implementation  of  more  effective  policies  of 
marketing, while preserving cultural sites. 

Community  actions  on culture  undertaken  in  1995/96 in  accordance  with  Article  128 of 
the  Treaty,  contribute  to  this  process49.  Pending  the  adoption  of  the  Commission's 
proposal  for a multiannual  programme called  "Raphael"50, over 300 pilot projects  relating 
to  the  conservation  of  European  architectural  heritage  have been  supported  in  1995-96, 
with  a  contribution  of  17.5  MECU  by  way  of  Community  funding.  With  regard  to 
contemporary  culture,  the  Community  has  continued  to  support  the  European  City  of 
Culture  and  the  European  Cultural  Month  initiatives  and,  within  the  Kaleidoscope 
programme51,  a  range  of  pilot  projects  have  been  initiated  based  on  transnational 
partnerships  for  the organisation  of cultural  events;  these contribute  to attracting  greater 
numbers of tourists. 

48 

49 

50 
51 

G.Richards- C.Bonink, Marketing cultural tourism  in Europe, in "Journal of vacation  marketing", 
vol.1, n°2, 1995. 
For the assessment of all Community  actions interesting culture, see the "First Report on the 
consideration  of cultural aspects in European Community  action", COM (96)160 final  of 
17.04.1996. 
COM (95)110 final  of 29.3.1995 
After  the  implementation  of  working  programmes  on  annual  basis,  following  a  Commission's 
proposal,  the  European  Parliament  and  the  Council  have  adopted  the  multiannual  programme 
"Kaleidoscope  2000" on 29.3.1996; OJ L 99 of 20.04.1996. 

22 

Within  the Community  Action  Plan (1993/95) to Assist  Tourism, the focus  is on  visitor 
management  techniques  for  cultural  sites. The  results  of  projects  supported  in  previous 
years  have  been  disseminated  and  discussed  on  the  occasion  of  specific  workshops 
organised  in  1996.  On that occasion also, as a result of the joint co-operation  established 
with  other  international  organisations,  such  as  the  Council  of  Europe  and  Unesco,  the 
need  for  a  reinforced  partnership  between  tourism  enterprises  and  cultural  interests  has 
been  underlined,  and  the  value  of  full  involvement  of the  Community  in this  process  is 
evident. 

On  the  question  of  a  more  responsible  use  of  energy  in  tourism  activities,  a  number  of 
pilot  actions  which  encourage  the  use  of  renewable  energy  and  energy  consumption 
efficiency  in  tourism  facilities  and  resorts  have  been  supported  under  the  Community 
energy  policy52. 

5.  CONCLUSIONS 

The  review  of  Community  actions  affecting  tourism  in  1995/96,  shows  that  the  great 
majority  of Community programmes and policies either now include a tourism  dimension 
In  this  way  Community 
or  have  a  significant  impact  on  tourism-related  activities. 
policies  affect  directly  or  indirectly,  European  citizens,  public  authorities  at  various 
administrative  levels, European enterprises  and, in certain  cases also, tourism  interests in 
third countries.  The progressive impact of Community  actions reflects  the recognition of 
the potential  contribution  of tourism to achieving the general objectives  of the Union  (as 
confirmed  by  article  3t  of  the  Treaty  on  European  Union)  and  the  value  added  which 
Community  actions  bring  in  terms  of  the  balanced  and  sustainable  development  of 
tourism. 

Despite  the  lack  of  a  specific  legal  basis  on  tourism  in  the  Treaty  the  Community  has 
been  able  to  undertake  a  wide  range  of  tourism  related  measures  based  on  the  general 
provisions  of  the  Treaty  and/or  on  the  provisions  relating  to  sectoral  policies. 
Nevertheless,  as  indicated  by  the  Commission  in  its  report  to  the  Council  on  Civil 
Protection,  Tourism  and  Energy,  the  continuity  and  coherence  of  Community  action  in 
this  field  could  be  facilitated  by  inserting  provisions  into the  Treaty  which  would  make 
such action more efficient  and more visible53. 

From  a  tourism  perspective,  the  impact  of  the  important  global  effort  could  be  further 
improved  if  the  objectives  and  instruments  of  tourism  measures  could  be  taken  into 
account  more  fully  in  the  definition  and  implementation  of  other  Community  policies; 
improved co-ordination and joint actions between the Commission  Services on key  issues 
relating  to  developing  the  potential  of  tourism  and  which  would  contribute  also  to 
achieving the Union's objectives will help this process. 

In summary, the improvement  of co-ordination  and consultation  with  Member  States and 
representative  of  the  various  branches  of  tourism,  is  an  essential  pre-
organisations 

52 

53 

See in particular Community  programmes THERMIE ( in OJ L 185 of  17.7.1990), SAVE (in OJ 
L 307 of 8.11.1991) and ALTENER (in OJ L 235 of  18.9.1993). 
See SEC(96) 496 final of 03.04.1996, p.6. 

23 

requisite  to  the practical  implementation  of  this  approach  and,  within  the  limits  of the 
current  framework  and  resources  applicable  to  tourism,  is  being  developed  as  far  as 
possible. 

Building on the experience of recent years, including the conclusions of both the Court of 
Auditors and of the evaluation of Community  actions to assist tourism54, and of the wide 
consultation launched following  the Green  Paper on the role  of the  Union  in the field of 
tourism,  the  key  issues  relating  to  the  future  of  Community  tourism  policy  have  been 
addressed very fully  by the Commission  in  1995/1996.  The Community  needs to make a 
qualitative leap in its activities in the field of tourism which, taking full  advantage of new 
developments  and  opportunities  becoming  available  notably  with  regard 
the 
"information  society", will make the tourism industry more dynamic and more capable of 
creating new and better jobs. 

to 

A more imaginative approach to Community  tourism measures, focused  on real  priorities 
and  attainable  goals,  can  help  Europe  to  maintain  its  leading  position  in  the  world 
tourism  market  and  can  bring  value  to  the  efforts  of  Member  States  and  regions  which 
will continue to exercise primary competence in this area. 

Under  its  proposal  on  the  First  Multiannual  Programme  to  assist  European  Tourism  -
"Philoxenia"  1997-2000 the Commission has proposed a framework  which will provide a 
sound  basis  for  action  to  encourage  a more competitive  industry  and  to  improve  quality 
in tourism  in Europe. The proposal was presented to the Council of Ministers on  13 May 
1996 and has been the subject  of a Resolution of the European  Parliament55,  and  opinion 
of  the  Economic  and  Social  Committee56  and  of  the  Committee  of  the  Regions57.  The 
Council has not yet taken a decision on the proposal. 

54 
55 
56 
57 

COM(96)  166 final  of 30.04.1996. 
OJC347 of  18.11.1996 
OJC30of30.1.1997 
OJC42 of 10.2.1997 

24 

ANNEXES 

!<> 

Tourism  in the  balance of  payments  -1996 

ANNEX 

I 

Source: Eurostat 

24 

Number  of  bedplaces  in hotels  and similar  establishments  -1996 

ANNEX  2 

Source: Eurostat 

Sf 

Nights  spent  by tourists  in all types  of  registered 
tourist  accommodation  -1996 

ANNEX  3 

Source: Eurostat 

2& 

Community  contributions  allocated to  tourism  in  Single 
Programming  Documents  and Communities  Support  Framework 

iti'<il«i-A 

-f 

(Oi 

0°l 

COMMUNITY  CONTRIBUTIONS  ALLOCATED  TO TOURISM  IU 
SINGLE  PROGRAMMING  DOCUMENTS  AND COMMUNITY  SUPPORT 
FRAMEWORKS  (STRUCTURAL  FUNDS  1994 -  1999) 

ANNEX  4 b 

MECU 

250 

500 

|>  « ^—  —  \j>3 

Kilometers 

3d> 

ISSN 0254-1475 

COM(97) 332 final 

DOCUMENTS 

EN 

16  01 

Catalogue  number  :  CB-CO-97-327-EN-C 

ISBN  92-78-21850-2 

Office  for Official  Publications of the European  Communities 

L-2985  Luxembourg