Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions - Enhancing tourism's potential for employment - Follow-up to the conclusions and recommendations of the High Level Group on Tourism and Employment
Date: 1999-06-23
Institutions: European Commission
Subjects: European Union, employment policy, job creation, tourism

23.6.1999

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Official Journal of the European Communities

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COMMUNICATION FROM THE COMMISSION

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

Enhancing tourism’s potential for employment

Follow-up to the conclusions and recommendations of the High Level Group on Tourism and
Employment

(1999/C 178/03)

INTRODUCTION

to analyse the significant contribution of

The impulse given by the European conference on Tourism and
Employment organised by the Luxembourg Presidency and by
the Commission in November 1997 was the start of a renewed
effort
tourism to
meeting the key challenges facing Europe at the eve of the
XXI century. Through its capacity to ensure greater cohesion
among European regions, including the most peripheral areas
of the Union where this activity often represents the main
source of income and employment, tourism has an essential
place in the integration of the economies of Europe’s regions
and in the enhancement of their cultural and natural resources.
influences which will
There are a number of
combine to provide new market opportunities for European
businesses, especially SMEs, and will contribute to bringing
closer European citizens and sharing their values. Among
these are the phenomenon of
(cid:145)demographic ageing(cid:146) which
profoundly change the shape of European society over the
coming decades (1). Moreover, the introduction of the euro,
the completion of the liberalisation process in transport and
development of transport networks, the more efficient func-
tioning of
together with the rapidly
growing expansion of new technologies and tools available
through the information society, which will expand further
the demand for new tourism-related activities and services,
will
facilitate citizens’ mobility and contribute to a greater
internationalisation of European tourist flows.

the Single Market,

important

(cid:151) the

recognition that

tourism-related activities

already
account for a significant proportion and a varied range of
jobs in Europe, and have a clear potential as job creators (it
is forecast that from the existing level of 9 million jobs,
tourism can create between 2,2 and 3,3 million extra jobs
by 2010 based on an annual growth rate of 1,0 to
1,5 % (2);

(cid:151) the importance of the tourism industry which is widely
represented in all EU countries (about 2 million businesses,
mainly SMEs generating 5,5 % of GDP, 6 % of employment
trade in services), as a valuable
and 30 % of external
(cid:145)test-bed(cid:146)
European
for
employment strategy in the services sector.

implementation of

the

the

(cid:151) the prominent role and responsibility of public authorities,
at the local, regional and national levels, and the supporting
role of the European Community, in the establishment of
conditions
in
tourism.

to sustainable development

favourable

Employment is at the top of the Commission’s priority actions
in tourism. The priority to be given to the link between
tourism and employment,
in accordance with the need to
mainstream employment policies at European level, reflects:

the population above the standard
(1) Within the next 20 years,
retirement age of 65 will
increase by 17 millions; numbers will
grow further over subsequent decades. This larger group of older
people will, on reaching retirement enjoy better health and longer
life expectancy and greater wealth and disposable income than
previous generations, contributing to further growth in tourism.
they will be less likely to concentrate their tourist
Given that
in with school and workplace
activity in peak periods to fit
holidays,
the seasonality of
demand for tourist services.

they can also help to iron out

The report of
the High Level Group on Tourism and
Employment (HGL), and the report of the European Parliament
on (cid:145)Jobs for the future of Europe(cid:146) (3), confirm this analysis and
emphasise the need for increased coordination of initiatives at
several levels which will allow the potential of tourism in terms
of the creation of extra and better jobs to be realised through
balanced and sustainable development. This implies an inte-
grated and cross-sectoral approach in relation to planning,
development and operation of
tourism activities with due
regard to the protection and appropriate use of the natural
and social environment in host areas.

(2) conclusions and recommendations of the High Level Group on
tourism and employment, European Commission (cid:151) DG XXIII,
October 1998.

(3) European Parliament A4 (cid:151) 475/98 report adopted on 9.2.1999,

rapporteur MEP Thomas MANN.

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together with the conclusions and
This Communication,
recommendations of the High Level Group, responds to the
the Council of Ministers to focus on the link
request of
between tourism and employment (4).
reflects also the
desire expressed at EU level by the European Parliament, the
Economic and Social Committee and the Committee of the
Regions, by the Members States, and by the social partners
to explore means
the
and conditions
contribution of
tourism to employment, and to encourage
the implementation of positive measures to ensure that this
potential will be realised.

for maximising

It

This will contribute also to facilitate the establishment of a
clear sectoral identity in the industry, which has been lacking
in the past due to the fragmented nature of its components,
explaining in some way why in political terms tourism has
been neglected as an employment creator.

The overall assessment of the report’s conclusions and recom-
mendations, and the follow up actions proposed by the High
Level Group, highlight the need for an improved and more
in keeping with
coordinated approach at Community level
the priorities and policies of the Union and of the Member
States. Such objective would be implemented by way of a
measured approach consistent with recources available and
guaranteeing their sound and efficient management.

important
Group in October 1998, have concluded a first
phase of the response to the Council’s request. As a result
there is now available:

(cid:151) a realistic assessment of job-creating potential

in specific

branches and activities related to tourism services;

(cid:151) an analysis of the main strengths and weaknesses of the

European labour market in tourism;

(cid:151) a strategic review of conditions and means for boosting the
competitiveness and improving the quality of employment
recommen-
through tourism, accompanied by practical
dations addressed to interested parties.

The comprehensive recomendations addressed by the High
Level Group in its report, aim at:

(cid:151) Activating tourism businesses to meeting the needs of

guests;

(cid:151) Making the tourism market work better by improving the

business environment;

(cid:151) Modernising and improving the efficiency of tourism infra-

structures;

1. BUILDING ON ACHIEVEMENTS

(Tourism) Ministers, at

its meeting of 26
The Council of
November 1997, confirmed the significant contribution which
a balanced and sustainable development of European tourism
can make to combating unemployment in the Member States.
the European Conference on
Acknowledging the results of
Employment and Tourism of 4-5 November 1997, held under
the auspices of the Luxembourg Presidency, the Council invited
the European Commission to explore this issue further and to
report back on the progress made.

(cid:151) Up-grading human resources in tourism;

(cid:151) Encouraging sustainable development of tourism.

The recommendations are addressed to:

(cid:151) the social partners, and to businesses in particular;

The establishment, early in 1998, under the authority of the
Commission and in consultation with the Member States, of
the High Level Group on Tourism and Employment, and the
presentation of the conclusions and recommendations of the

(cid:151) public authorities and tourist development and promotion

offices;

(cid:151) the European Union.

It is widely acknowledged that maximising the potential contribution of European tourism to
growth and employment, and to sustainable development would be facilitated through granting
greater recognition to the importance of the industry, and through a greater integration of relevant
Community policies. This would lead to:

(cid:151) facilitating the integration of legitimate tourism concerns at various levels of decision making;

(cid:151) encouraging the process of modernisation of tourism-related services and the development of a
leading to a more competitive industry capable of

new entrepreneurial culture in tourism,
maintaining its place in the face of strong competition from destinations outside Europe.

(4) Council of (Tourism) Ministers of 26.11.1997.

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2. BUILDING ON INFORMATION AND BEST(cid:150)PRACTICE IN A

EUROPEAN FRAMEWORK

Community initiatives which are being taken in relation to
tourism.

the report

The immediate publication of
in all EU official
languages and its wide dissemination by the Commission
opened a second phase of action designed to encourage
public authorities, professional associations and tourism busi-
nesses to consider the problems raised in terms of their own
experiences, and implement pratical measures accordingly.

This process has started already in most Member States and in
Members of the EEA, as indicated at the special meeting of the
Tourism Advisory Committee held in Berlin on 10 March
1999. On that occasion, Member States’
representatives
warmly welcomed the HLG report which was considered
valuable, and,
inter alia, as contributing to raising the recog-
nition of the importance of tourism.

The impulse given by the Commission to the question of
tourism and employment, has contributed to improving
analysis and raising awareness of necessary measures.
It
confirms the value of widespread consultation and cooperation
on the conclusions and recommendations of the High Level
Group, and highlights the need for an effective follow-up by
means of coherent long-term strategy.

The proposals of the HGL call for a combined effort consisting
of:

(cid:151) the development of

adequate

supporting tools and greater exploitation of
tunities opened by Community programmes relevant
tourism;

framework conditions,
the oppor-
to

Initiatives taken by Member States in relation to issues raised
by the High Level Group show a convergence of views on
enhancing the competitiveness of European tourism in the
interest of growth and employment. There is a general recog-
nition also that this common goal could be better reached by
improving the exchange of
information and by developing
synergies among the wide range of national and
greater

(cid:151) the recognition that balanced and sustainable tourism
policies, as part of an integrated policy approach, can
make tourism an additional key element
in meeting
Europe’s major policy objectives, leading to the integration
of tourism into structural reforms, and to the consideration
of
the European policy
guidance on employment:

tourism in the framework of

The strategy should address the three main problem areas which emerge clearly from the overall
assessment of the Group’s recommendations, namely:

(cid:151) the need for better knowledge, know-how and expertise in tourism;

(cid:151) improving information on, and access to targeted Community initiatives and programmes of

interest to tourism;

(cid:151) greater exchange of information on development initiatives and on legislative measures affecting

tourism, taken by public authorities in the Member States.

In practical terms the main elements of such a strategy might
include the following:

(cid:151) A Multiannual Tourism (framework) Programme as in the
compromise proposed to the Council of Ministers by the
Austrian Presidency following the Commission’s proposal,
and which would allow the establishment of the main oper-
ational tools required:

is

It
recalled that
Presidency includes:
tative and qualitative information,
ii)

the compromise by the Austrian
i) pooling and disseminating quanti-
including best pratice;
on

user-friendly

information

developing

tools

Community programmes and initiatives of
tourism;
tation and cooperation with public
tourism industry and other interested parties.

to
iii) developing a structured platform of consul-
the

authorities,

interest

(cid:151) Policy guidelines proposed by the Commission and the
Member States, with the candidate countries being invited
to participate actively in the work.

(cid:151) The future Commission may wish to consider the oppor-
tunity to review the existing arrangements for ad hoc
consultation involving some 40 different European organi-
sations and create a single new European Tourism Advisory

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Board. The Board, which could advise the Commission on
developments in European tourism, could be representative
of major stakeholders and could include decision-takers of
stature in the private and the public sectors. This could
allow also the practice of utilising the best available
expertise to explore key issues of importance to tourism
being better exploited as part of a coherent approach to
achieve targeted priorities (5).

better jobs in underexploited areas of economic activity. It is
also in keeping with the 1999 Employment Guidelines which
contain a new commitment on the part of Member States to
fully exploit the employment potential of the services sector
where the EU is lagging far behind the US.

(cid:151) The mutual consultation and cooperation with other inter-
national organisations active in tourism development such
as the OECD, Council of Europe, UNESCO, world Tourism
Organisation, could be developed in order to ensure greater
synergies among individual initiatives and to promote EU
achievements in this field (6).

Essentially the approach outlined has its basis in a (cid:145)knowledge
driven(cid:146) European tourism strategy which would encourage
businesses, public authorities and other interested parties to
better
existing information, acquire and develop
know-how, develop new processes, and learn from best
practices.

exploit

3. ENHANCING THE CONTRIBUTION OF TOURISM TO THE

EUROPEAN EMPLOYMENT STRATEGY

The Commission’s ongoing work on tourism and employment
is part of the commitment of the European Community to
place employment at the heart of Community actions. This is
in keeping with the policy of mainstreaming the employment
objective throughout Community programmes and policies
which is the subject of a separate Communication (7)
from
the Commission in preparation of the decisions to be taken
at the European Council in Cologne (of 3 to 4 June 1999). It
reflects the need to use all available opportunities for inno-
vative, environmentally sound and sustainable actions
in
favour of employment, and to establish new partnerships and
new synergies leading to growth, together with additional and

(5) The appropriateness of such an approach is confirmed by the
positive experiences made for example in the context of the fight
against child sex tourism, of urban tourism, of
tourism and
employment, of quality in tourism destinations, of tourism and
the Euro.

(6) The

important

the European
results and ongoing work of
Community in various aspects of tourism policy, for example in
relation to the development of harmonised tourism statistics, to the
integration of sustainable development principles in tourism, to the
relation between culture and tourism, to the fight against child sex
tourism, have provided relevant input to the activities of
these
organisations which have
the opportunity to build on EU
achievements for further developments among their members.
(7) Community policies in support of Employment, COM(1999) 167

final of 21.4.1999.

The report of
the High Level Group on Tourism and
Employment demonstrates why tourism could be a valuable
partner, and the conditions under which it would be possible
to develop fully its contribution to growth and employment.
The report shows also that part of the tourism industry itself is
increasingly sensitive to social and environmental concerns,
and that
the industry, some of
whom have already taken individual commitments are ready
to take an active part in developing employment opportunities
in that
and to cooperate in a sustained Community effort
direction.

leading representatives of

trends in growth and employment (8) confirm the
Recent
findings of the High Level Group in relation to the potential
of tourism in addressing the four key elements at the basis of
the European employment strategy, namely developing entre-
preneurship, improving employability, encouraging adaptability,
and strengthening equal opportunities (9).

The impact of tourism on employment should be seen also in
relation to the general liberalisation of inbound and outbound
tourism for EU Member States and to the fact that no major
third countries still restrict the movement of people and their
spending abroad on the basis of commitments taken under the
General Agreement on Trade in Services (GATS) (10). The level
of commitments undertaken regarding the tourism sector is far
grater than any other sector, in the case of nearly all countries
concerned (114 Members at March 1999), and the priority is
now focussed on implementation. This clearly indicates the
to expand their
intention of most WTO Member States

(8) According to the European Labour Force Survey, about 300 000
new jobs have been created in Europe between 1995 and 1997 in
hotel and restaurant activities. Growth in this branch of tourism
was more than 5 % on average, with the highest rate in Europe
being realised in Germany and Austria (both 11 %). This increase in
employment is directly linked to the steady growth of tourist flows
and travel receipts in Europe. As confirmation of the faster growth
rate of international tourism compared to domestic tourism, the
first six months of 1998 indicated a growth of inbound tourism of
In April 1998
3 % while domestic flows increased by 0,4 %.
inbound tourism grow reached a peak and non-resident
flows
grew as much as 12,4 % compared to April 1997. EU tourism
receipts grew by 8,9 % during the first six months of 1998
compared to 1997 (Eurostat, Statistics in Focus, Tourism 05/1999).
(9) See in particular, Joint employment report 1998, adopted by the
Council on 3 December 1998; Employment rates report 1998,
COM(1998) 572.

(10) For pratical

information on GATS, see: European Commission,
(cid:145)GATS 2000 (cid:151) opening markets for services(cid:146), Luxembourg, 1998.

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tourism activities and increase inward direct foreign investment
as part of
their efforts to promote economic growth. The
Commission is currently in the process of developing an
inventory of priority countries and market access barriers
which should be dismantled. At
is
necessary to generate and maintain the broad support for an
open world economy that has enabled rapid growth in so
many parts of the world in recent decades. In this respect,
the further liberalisation of tourism and travel-related services
has an important role to play.

same

time,

the

it

The favourable combination of demand driven oppor-
tunities and of structural conditions in the European
tourism industry could encourage Member States:

(cid:151) to focus on horizontal actions relevant to tourism in
the National

to be taken under

the measures
Employment Action Plans (NAPs);

(cid:151) to

include

specific

boosting
people and particularly women.

entrepreneurship

tourism related measures
young

potential

in

fully considered in all

While tourism could be regarded as a partner ideally placed to
contribute to this process, its contribution to employment has
rarely been fully explored or
its
dimensions. This is all the more unfortunate in that tourism
has the merit of being spread over a wide range of economic
activities in every region of Europe and involves a substantial
investment in human capital. The fact that tourism is a frag-
mented industry made up of a large number of small busi-
nesses and does not therefore benefit from a clear sectoral
identity goes
to be
some way to explain why it
neglected as an employment creator.

tends

There are several reasons why tourism could be an effective
partner in the development of a European employment policy,
namely:

(cid:151) the favourable current and forecast prospects for growth in
tourist demand, encouraging the development of new busi-
nesses, new products and services, and new jobs, notably in
relation to the integration of environmental concerns into
toursim development practices;

(cid:151) the nature and structure of tourism businesses, their wider-
spread presence throughout Europe, the easy access to the
market for newcomers, and the prospects for creating new
niche markets, encouraging new business activity;

(cid:151) the fact that tourism is part of the next round of services
negotiations in the year 2000, which should extend liberali-
sation world-wide, creating new trade and investment
opportunities;

(cid:151) the wide range of activities which come together to satisfy
tourist consumption are an integral part of the economic,
social and administrative fabric at
local, national and
European levels;

(cid:151) the flexible work environment in tourism services facili-
tating the access of young people and particularly women
to the labour market, and the opportunity for ensuring
continuous training.

4. REINFORCING SYNERGIES TO BETTER EXPLOIT EU OPPOR-

TUNITIES

a

already makes

The European Community
substantial
contribution to tourism development in the Member States
under a wide range of programmes and initiatives undertaken
in many policy areas (11). In budgetary terms, this contribution
is most evident through the structural funds with 4,7 billion
euro provided via the ERDF for the programming period
1994-1999 (12). This is a clear sign of
the importance of
tourism as a driving force in economic activity in many
areas across the Community, including rural areas and those
In order to ensure optimum
affected by industrial decline.
results from the substantial funding provided,
it is essential
to ensure the integration of sustainable tourism strategies
into a wider economic development perspective.

for

This process could be helped by a coherent Community
consultation and cooperation in tourism
framework for
of
and
the
allowing
information and best-practice. The aim should be to assure
an
in
and
programming methods for the plans to be drawn up by
Member States for the period 2000-2006 (13).

dissemination

identification

partnership,

integrated

approach

notably

In some respects certain recommendations in the HLG report
anticipate recent developments in important Community policy
in the fifth RTD framework programme
areas, for example,

(11) Report

from the Commission to the Council on Community
measures affecting tourism (1995/96), COM(97) 332 of 2.7.1997.
funds
in

(12) For an overview about the implementation of structural

report on Structural Funds

see ninth Annual

regulations,
1997, OPOCE, 1999.

(13) See in particular (cid:145)The structural funds and their coordination with
the cohesion fund (cid:151) Draft Guidance for programmes in the
period
the Commission
SEC(1999) 103 of 3.2.1999. See also, Cardiff II report on structural
reforms, COM(1999) 61.

2000-2006(cid:146), Working

paper

of

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which identifies tourism as an eligible sector (14) Tourism busi-
nesses and activities are undergoing an important structural
change in the way tourism products and services will be
produced, distributed, aggregated/marketed and sold. The
information society will offer the opportunity to the tourist
industry to further network and increase its competitiveness
through making known more widely the tourist offer, and by
providing an additional tool for better management based on
more rapid receipt and processing of essential market and
support information. New important opportunities. The chal-
lenges and opportunities for the integration of
information
society facilities have an even greater relevance for tourism
SMEs. The incorporation of
IST tools into their working
methods, early investment in the necessary equipment and in
better training will lead to more and better jobs, higher profit-
ability, and more opportunities for the exploitation of niche
markets.

Other Community policy areas of importance to the further
development of a sustainable tourism in Europe are already
under review, such as the fifth Environment programme (15).

reforms

the European
The recent agreement on AGENDA 2000 at
in addition to establishing a new financial
Council (16),
of
includes policy
framework,
in a number
for
important areas which will create new opportunities
tourism in the achievement of
exploiting the potential of
major Community objectives. Among these are the new
arrangements for the Structural Funds, including Community
initiatives and innovative actions, the Cohesion Fund, as well as
the reform of the Common Agricultural Policy which brings an
in which the
increased emphasis on rural development
Community Initiative, LEADER, and other possibilities for
diversification in agriculture will have an essential
role.
Furthermore,
contribute
significantly to maintaining the cultural and natural landscape
as well as the biodivierstiy and habitats that make Eruope’s
rural areas attractive to tourists.
In the context also of
AGENDA 2000 tourism could make an important contribution
to a succesful enlargement;
judicious use of Community
instruments available in the case of the candidate countries

sustainable

agriculture

can

could lead to further growth and development of their tourist
industries on the basis of sustainability and quality. The devel-
opment in those countries of tourist services in accordance
with the concerns of the local population and the integration
of environmental principles will incerase their attractiveness for
thereby generating increased
tourists from the Community,
revenues
and could therefore help to
increase contacts and develop relationships between our
respective peoples.

and investment,

visible

evidence of

stimulate further

Important opportunities for tourism will arise also with the
the same time,
introduction of
the single currency. At
tourism will provide
the practical
advantages flowing from the introduction of the euro which
will lead to greater price transparency and savings for tourists.
intra-European
The single currency will
tourist
flows and visitors from third countries to Europe,
notably by providing an additional means of promotion of
Europe as a tourist destination.
that a large
number of European consumers are likely to have their frist
real contact with the euro during their holidays. In this context,
the Commission Communication on the information strategy
for the euro referred to tourism as a particularly interesting
sector for the introduction of the euro and indicated that busi-
nesses operating in this area can very usefully contribute to the
the
information on the practical and specific aspects of
tourism
euro (17). As potential
the
operators have also to prepare themselves
the single
currency earlier than other sectors, and the Commission will
remain attentive to ensuring that the industry is fully prepared
for the smooth take up of the euro (18).

first users of

euro,
for

is evident

It

in the field of
Likewise in the development of actions
commerce with which tourism remains closely linked,
the
Commission will seek to ensure maximum synergies in the
measures to be taken (19).

(14) Decision No 182/1999/EC of the Eruopean Parliament and of the

Council (OJ L 26, 1.2.1999, p. 1).

(15) According to the fifth EAP and the progress report and action plan

of 1997, the following priority actions are indicated:
(cid:151) integration of environmental considerations right from the start
into tourism policy at the most appropriate level, integrated
land-use planning, stricter control measures on land-use;
(cid:151) a framework for protection of sensitive areas as desired by
Member States, in particular for sensitive areas in the Medi-
terranean, Baltic, the Alps and coastal zones;

(cid:151) information for tourists,

involving better information on the
state of
the environment, promotion of new forms of
tourism which care for the environment, careful selection of
accommodation, awareness building etc.;

(cid:151) management of toruists’ flows to respect the carrying capacity
of tourist sites and implementation of appropriate measures to
manage tourist flows to the lasting benefit of the sector and the
environment.

(16) European Council Berlin, 24/25 March 1999,

Presidency

conclusions SN 100/99.

tourism requirements

integration of
policies,

Many operational recommendations put forward in the report
the High Level Group could be implemented by more
of
in existing
effective
Community
The
programmes
following indications illustrate how the recommendations put
forward by the Group could be followed up on the basis of the
opportunities provided by Community instruments They are
regrouped by main domain of activity and in relation to the
type of action involved.

initiatives.

and

(17) Commission Communication on the information strategy on the

euro, COM(1998) 39 of 23.1.1998.

(18) Within this framework the Commission has carried out the work
of an industry-based (cid:145)working party on the euro and tourism(cid:146), and
a European conference involving representatives of
the major
payment schemes.

(19) For example, the Commission recently adopted a White Paper on
Commerce which includes actions on commerce and tourism,
COM(1999) 6 final of 27.1.1999

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4.1. Improving the competitiveness of European tourism

through innovative information tools

benchmarking methodology as an instrument for improving
the competitiveness of European tourism.

establishment of

The
an on-line European Observatory
Network on Tourism ((cid:145)EurONeT(cid:146)) could contribute to fulfilling
the existing gap in knowledge on tourism at the European level
by linking together proven sources of
information through
exploiting facilities provided by new technologies. Designed
to be a (cid:145)one-stop-information-shop(cid:146) this system could become
a unique user-friendly support for decision-takers in tourism.

structure,

demography

In relation to quantitative information (cid:151) on tourist markets,
on
business
employment trends, on environment indicators (cid:151) the system
could benefit from the progressive development of information
from existing European statistical systems and from national
tourism organisations wishing to be part of the network.

performance,

and

In relation to qualitative information, the system could cover
directly and via links with existing relevant EU information
systems, specific sections on:

Best-practices and innovative processes

4.2. Tourism in EU enterprise policy networks

The enhancement of the role and the improvement of the
performance of EU enterprise policy networks such as (cid:145)Euro
Info Centres(cid:146), (EICs), already well established throughout Europe
and in some partner countries would contribute to improving
the business environment and facilitate the access and use of
opportunities provided by the Community. Over and above the
issue of the network giving easier access to information and EU
programmes,
they also have a network effect by working
together and giving information on local market conditions
and opportunities. In areas particularly concerned by tourism
development, the Commission could investigate the willingness
of
to develop targeted services of
assistance for tourism businesses and public authorities. This
can be explored during the networks promotion campaign
currently run by the Commission Services, primarily in the
Member States. This could lead to the identification, on an
experimental basis, of Tourism Advisory experts in the EIC
host organisations in the Member States.

the partner networks

(cid:151) start-up of

business,
planning, management and marketing;

tourism product

development,

This initiative could possibly be developed under the existing
and future Multiannual Programme on SMEs.

(cid:151) information technology applications and facilities;

(cid:151) the integration of sustainable development principles and
environmental

including

labelling

and

techniques,
management systems;

(cid:151) training and human resources management.

Community programmes and initiatives relevant for tourism

(cid:151) regulatory measures;

(cid:151) financial support measures.

Research and documentation institutes in tourism

Studies undertaken at the Community level

in relation to tourism

regularly
The information made available by the system,
up-dated, would be the basis for the preparation of a report
on the competitiveness of European tourism, as recommended
by the High Level Group. This report could be of support to
public authorities, the tourism industry and other interested
parties for setting up measures which integrate the use of

4.3. Employment, labour market conditions and training

in tourism

The development of regulatory provisions and of supporting
instruments designed to meet the need for a more employment
from which tourism could benefit
friendly environment
concerns in particular: taxation,
labour-market transparency,
transnational recognition of qualifications and training, social
dialogue between tourism industry partners.

the

since 1993 (20)

European
In relation to taxation,
Commission has drawn the attention of the Member States
to the need to reduce the tax burden on labour. The
Commission has recently presented to the Council a proposal
for a Directive allowing those Member States which so wish to
apply a reduced VAT rate on certain labour-intensive services
for an experimental period (21). The services concerned must
satisfy specific requirements. Insofar as tourism services would
meet
from the
experiment. This measure should contribute to exploiting the
large potential
for job creation in businesses offering local
services, and could also help to reintegrate into the tax

they might also benefit

these conditions,

(20) White Paper on Growth, Competitiveness, Employment, December

1993 (cid:151) Chapter IX.

(21) Proposal of Council Directive COM(1999) 62 of 17.2.1999.

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23.6.1999

system some businesses which have drifted into the black
economy. The increasing awareness of the need for greater
in line with the
coordination between Member States
concerns
and this
approach may continue to be promoted by the Commission.

is
tourism industry,

expressed by

the

In order to improve labour market transparency and greater
training and work experiences in
recognition of education,
tourism at
in
accordance with decisions already taken, promote in particular:

the Commission could,

the Euopean level,

(cid:151) more extensive use of the Eruopean employment network
(EURES) and the provision of targeted assistance to tourism
businesses and job-seekers which could facilitate
the
matching between demand and supply of
tourism jobs,
and improve workers mobility;

(cid:151) full

implementation of

the Directives for mutual recog-
acquired in EU
nition of professional qualifications
Member States, and implementation of the Commission’s
initiative on the adoption of
the (cid:145)EUROPASS Training(cid:146).
This could promote mobility in work-linked training,
including apprenticeship,
allow for greater
tansparency and visibility to qualifications and experience
acquired during work-linked training abroad (22).

and will

(cid:151) more effective use,

(cid:145)Employability(cid:146),

framework for

in tourism-related activities, of

the
European Social Fund, as the main EU financial tool for
developing human resources and improving the functioning
In the forthcoming programming
of the labour market.
period (2000(cid:151)2006) the general objective of the ESF will
be to prevent and combat unemployment and to develop
human resources in order to promote a high level of
employment. The National Action Plan for Employment
(NAP), as required by the Eruopean Employment Strategy,
with their priorities
(cid:145)Entrepreneurship(cid:146),
(cid:145)Adaptability(cid:146) and (cid:145)Equal opportunities(cid:146) will serve as the
overall
the ESF measures mainly to
promote active labour market policies and to improve the
access to the labour market. In the case of structures and
systems, while respecting the competition rules, incentives
could be provided to improve the quality of training and
the efficiency of employment services, to develop closer
links between the world of work and education and
training institutes, to foster systems for forward planning
and for anticipating changing employment and skills needs,
in particular in the case of new forms of work organistion.
This will be an important element in creating sustained
employment in tourism, as it will enhance the attractiveness
of
in tourism and ensure high quality services.
Furthermore, the capacity of tourism for integrating unem-

jobs

jobs could be better
ployed people in a wide range of
exploited through greater
in training at
different levels of qualification, and through measures for
the up-grading of
the
expanding needs of the industry.

to better meet

investments

in order

skills

In the field of transnational cooperation in education and
training, the results of ongoing evaluation of the results
achieved within the (cid:145)Leonardo da Vinci(cid:146) programme could
be taken into account for improving access tourism-related
activities in the implementation of the next phase of the
(2000-2006), due to be adopted by the
programme,
Council and by the European Parliament during 1999.

(cid:151) moreover, the Guidelines for the Structural Funds in the
period 2000(cid:151)2006 (23) recommend that Structural Funds
plans should consider (cid:145)upgrading skills and professional
profiles in order to respond better to the expectations of
tourists and the needs of the industry(cid:146).

The improvement of consultation and dialogue between the
social partners
in tourism, could continue to be a key
priority in the Commission’s work. An important contribution
from the social dialogue process has been given by the recent
framework agreement on fixed term work, which has a direct
impact on seasonal activities, such as tourism. Building on the
progress made in this repect
(Hotel and
Restaurant sector) and while promoting further developments
in this sector, the Commission could investigate the willingness
of other branches of tourism to launch a similar platform of
dialogue at the European level (24).

in the (cid:145)Horeca(cid:146)

4.4. Tourism related infrastructures

The positive impact on tourism flows of
the liberalisation
process in transport which has been boosted by Community
initiatives will require continual efforts to ensure more efficient
and sustainable infrastructures. Further advantages could be
traffic de-congestion through
gained,
ensuring a greater
systems,
transport
notably in tourist destinations.

inter-operability of

in terms of

inter alia,

The Commission is conscious of
the increasing impact of
efficient transport and new technology infrastructures on the
It has recognised the
competitiveness of European tourism.
to
need for measures designed to meet concerns similar

(22) Council Decision 1999/51/EC (OJ L 17 of 22.1.1999, p. 45).

(23) SEK(1999) 103 final of 3.2.1999.
(24) COM(1998) 322 of 20.5.1998.

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C 178/11

those expressed by the HLG, under the guidelines adopted for
the future programming period of the Structural Funds, and in
implementing measures under way following the
recent
adoption of the fifth RTD Framework Programme.

In particular, tourism will benefit from the implementation of
actions planned under the fifth RTD programme designed to
contribute to the emergence of high quality, personalised
services for European citizens, and to develop innovative tech-
nological applications and standardisation measures will enable
the tourist industry, especially SMEs, to invest in information
and teleommunication system solutions. The outcome of the
projects should contribute essentially to the competitiveness of
the European tourism industry. To define targeted specific
research actions the Commission is seeking the views of the
tourism industry concerning their real research needs. For this
purpose a web site has been set up with the aim of inviting
experts in the area of tourism and IT to participate in a virtual
discussion forum. This will also give the opportunity to
promote information society technologies
In
addition to the discussion forum, a database with key players
in tourism and IST (including the private and the public sector)
will be set up, which could be used as a means to identify
partners to exchange best practices or to develop joint ventures
with regard to business or projects. The fifth Community
framework programme will provide a particular opportunity
for the integration of cultural heritage into the urban setting.
By enhancing the opportunities opened by cultural heritage for
tourism, the aim will be to develop tools, methodologies and
models which would assist decisionmakes on issues linked to
accessibility and sustainability, and to exploitation of cultural
heritage.

in tourism.

Sustainable transport has a fundamental role in promoting
growth and employment in the tourism industry. European
infrastructure, particularly in economically under-
transport
developed and in peripheral
regions, has benefited from
substantial
investments by the European Structural Funds
(notably the European Regional Development Fund (ERDF))
and the Cohesion Fund. The ERDF has allocated 13,7 billion
euro to transport investment in less-developed regions over the
period 1994-1999 and the Choesion Fund has allocated more
than 5 billion euro between 1993 and 1999 for the devel-
opment of key trans-European transport links.

Implementation by the Member States of the (cid:145)Trans-European
Transport Network(cid:146) initiative and on-going discussions on the
establishment of a European air traffic control system will
continue to be encouraged. Furthermore,
the Commission
could support efforts to be undertaken by Member States
and their regions with a view to additional or improved
infrastructure providing attractive environ-
public transport
mentally-friendly access
located in
good reach from the main railway links. Major achievements
in developing transport infrastructures at the international level

to tourist destinations

level

the regional

liberalisation of

in various Member States, have
and at
directly contributed to facilitating access to traditional tourist
destinations and created new opportunities in other areas. The
completion of
the European air transport
market has provided tourism transport with new opportunities,
whilst maintaining and enhancing employment prospects in the
air transport sector. It is particularly important for the success
of
the tourism industry to match the forecast growth in
European air traffic with sustainable and congestion-free travel.

The Commission could encourage also greater consultation and
cooperation among the parties concerned (tour operators and
travel agencies, airport and public authorities in main tourist
destinations, airline companies) in order to reduce the pressures
generated by tourist flows in peak-season and at peak-times.

4.5. Sustainable development and quality standards

The Commission is already committed to encouraging and
integration of environmental concerns
supporting the full
into tourism development planning and practices,
including
the use of indicators for sustainable tourism and the integration
of environmental criteria into management practices of tourism
enterprises and schemes for tourism destinations.

Building on the results of the wide range of actions undertaken
in this area as part of its sustainable development strategy, and,
with a view to mainstreaming this approach throughout all
especially
Community
introduce environmentally
encourage initiatives which will
friendly practices
including
instruments and schemes for identification and dissemination
of best practice.

in tourism, notably by SMEs

Commission may

policies,

the

Trans-European

impact assessment of

tourism
Regarding the environmental
projects, the Commission pays full attention to the correct
implementation by Member States of the relevant provisions
of the European Community legislation and urges the respect
of a similar approach in EU partner countries. In the context of
the
Cooperation
the
Community Structural Funds,
the Commission could inves-
tigate the feasibility and the interest of relevant authorities in
the Member States in launching a revitalisation programme for
tourist destinations in decline and affected by mass tourism,
and by the degradation of environmental assests arising from
ill-conceived tourism investments in the past. Preliminary work
in that context has been initiated in 1999.

Initiative

under

Relevant information on carrying capacities in urban tourist
destinations will be provided by the
recently launched
(Agenda for Research on Tourism by Inte-
ARTIST project

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Official Journal of the European Communities

23.6.1999

gration of Statistics and Stragies for Transport), financed under
the (cid:145)Transport RTD Programme(cid:146) of the Community’s Research
and Development Framework Programme.
the
Community research project on transport and tourism and
its key objectives include analysing and reviewing existing
visitor management practices, especially in European cities
with large tourism flows. It will be carried out over the next
12 months, followed by dissemination of the results.

is one of

It

Attention should also be paid to sustainable development of
tourism in rural areas. The Commission Communication on
(cid:145)Directions towards sustainable agriculture(cid:146) (25) underlines the
potential of tourism to achieving diversification of economic
activities, in particular where the agriculture sector is declining.
Such a development requires a sustainable and integrated
approach to meet the tourists demand for quality, to improve
benefits for local businesses and communities and to preserve
the natural heritage (landscape and biodiversity) as well as the
cultural heritage (architecture, handicrafts and traditions).

and

actions

existing

The low level of use and dissemination of quality management
techniques and strategies are major weaknesses affecting the
competitiveness of the tourist industry. In relation to enter-
prises,
developed on a
voluntary basis within the framework of the quality policy
supported by the Commission can provide
and intiatives
valuable means for addressing this issue. The wide dissemi-
nation and implementation of
specific studies
undertaken by the European Commission in relation to inte-
grated quality management in coastal, urban and rural tourist
destinations, will encourage further progress in this area.

results of

schemes

5. ENSURING THE EFFECTIVENESS OF COOPERATION

the HLG.

Implementation of many of

The indications given above have identified measures which
could be envisaged by way of an initial response to the recom-
mendations of
these
measures will allow tourism to play its role in the attainment
important Community policy objectives. However, past
of
experience,
including evaluation of Community measures
relating to tourism has shown a serious risk of overlapping
and redundancy, which tends to diminish the effectivenees of
the efforts of the Community and of Member States. Such risks
could be substantially eliminated through a strategy framework
which would ensure more coherence and greater transparency
at all levels.

This would help to:

(cid:151) better determine policy priorities;

(cid:151) bring

greater

contribution
European tourism;

to

cost-effectiveness
improving

the

to

the Community
of

competitiveness

(25) Communication on sustainable agriculture, Com(1999) 22 of

27.1.1999.

(cid:151) facilitate the identification and the removal of barriers to

tourism development.

The successful exercise of the present mandate, under which
the relevant Service of the Commission responsible for tourism
is charged with the task of coordination of all Community
measures affecting tourism, must overcome a number of chal-
lenges. Among these are:

(cid:151) the wide scope of the actions concerned, not all of which
can be readily identified by the Commission services as
having an impact on tourism (for example in national or
regional programmes of tourism development);

(cid:151) rapid developments in the market, which require a constant
flow of quality information to the Commission Services;

(cid:151) the need to focus on relevant issues in integrating common

tourism concerns into Community instruments;

(cid:151) the ability to communicate

information on
Community initiatives to qualified interested parties and
to raise their awareness and involvement;

essential

(cid:151) the difficulty in making the case for exploiting the potential
of tourism in a situation of uncertainty as regards its place
in Community priorities.

other

under

policies

instruments,

information,

cooperation,

of measures

relevant Community

These challenges require that the Commission’s administrative
structure charged with responsibility for tourism should focus
more on the
and partnership
functions, leaving pilot actions, where appropriate, to initiatives
and
taken
programmes. Such initiatives could be encouraged, under the
implementation
horizontal
Community
in particular on employment,
education and training, enterprise policy, Research and Devel-
opment policy, environment and statistics.
is essential,
however, that the integration of priority tourism issues into
other Community policies and programmes should not be
undermined by the absence of good advice and expertise;
this problem could be avoided through the implementation
the specific tools mentioned in chapter 2, designed to
of
ensure that high quality, up-to-date information,
is made
available in a systematic way.

planned

under

It

6. CONCLUDING REMARKS

The expectations that the report of the High Level Group has
created at the level of the European Institutions, the Member
States and the industry emphasise the need for ensuring an
effective Community contribution to the development of
European tourism.

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A more effective approach at Community level will require, on
the one hand,
simplification of
rationalisation of means,
procedures, and consolidation and assessment of achievements,
and on the other hand better consultation, cooperation and
partnership.

the elements forming part of

Most of
that approach are
common to the Community’s strategy on tourism in the
context of
In that
context, as regards developing countries, the Council of (Devel-
opment) Ministers (26) has recently fully endorsed the European
Community strategy proposed by the Commission.

cooperation with partner

countries.

the

Despite the clear analysis showing the economic and social
impact and potential of tourism, together with its increasing
internationalisation,
lack of a shared vision among
European countries on tourism development, and the absence
of political recognition for the role and place of tourism in
Europe’s construction makes for lost opportunities in terms of
exploiting the potential of the sector. This is all the more
unfortunate having regard to the increasing interest shown
by EU candidate and partner countries in EU guidance and

assistance in tourism, and the process of convergence and
cooperation being established with these countries in the
field of
tourism. This situation underlines the need for a
clear vision of the conditions under which the players at all
levels in European tourism can make a worthwhile input to
facilitating sustainable development of the industry, including
SMEs, through partnership and cooperation, and an indication
of what the Community can bring to that process.

In its concluding remarks the High Level Group sets out the
arguments and outlines the conditions which would allow
tourism to achieve
recognition (cid:145)European tourism
deserves as a leading player(cid:146).

the

The need now is for the development of an innovative strategy
for ensuring that all the stake holders, whatever their level of
responsibility, will
respective
contributions through a system which would allow for open
discussion on common objectives, the exchange of knowledge,
encouragement of
innovation, and greater transparency and
quality in planning and legislation.

to make

their

able

be

The foregoing analysis underlines:

(cid:151) the appropriateness of the conclusions of the High Level Group in relation to the conditions for
maximising the contribution of tourism to growth and employment, and to sustainable devel-
the Group’s
opment,
conclusions, and to include them in national strategies, where appropriate,
in accordance
with their tourism policy priorities;

the importance for Member States to continue the examination of

(cid:151) the need for

improved framewok at Community level bringing greater effectiveness to

Community actions in the field of tourism.

It will be for the future Commission to consider the opportunity to examine progress made towards
the implementation of the High Level Group’s conclusions and recommendations on the occasion
of the First European Summit on Tourism in the year 2000.

(26) Communication from the Commission to the Council and the
Eruopean Parliament on a European Community strategy to
support the development of sustainable tourism in the developing
countries, COM(1998) 563 of 14.10.1998, and conclusions of the
(Development) Council of 30 November 1998, (PV13536/98 of 13
January 1999, Annex II).