Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Basic orientations for the sustainability of European tourism [SEC(2003) 1295]
Date: 2003-11-21
Institutions: European Commission
Subjects: EU policy, sustainable development, tourism, tourism policy

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 21.11.2003
COM(2003) 716 final

NOT FOR PUBLICATION

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

Basic orientations for the sustainability of European tourism

[SEC(2003) 1295]

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

Basic orientations for the sustainability of European tourism

TABLE OF CONTENTS

EXECUTIVE SUMMARY........................................................................................................ 4

I.

II.

III.

IV.

V.

1.

2.

a)

b)

3.

4.

Introduction.................................................................................................................. 5

Challenges and objectives of sustainable tourism........................................................ 6

Where we stand: The state of the art............................................................................ 9

Facing the challenges: the policy option.................................................................... 10

Implementing tourism sustainability: Basic orientations for a European Community
approach ..................................................................................................................... 12

The general concept of future action.......................................................................... 12

The European Community contribution .................................................................... 13

In the international context ........................................................................................ 13

Within Europe ............................................................................................................ 14

What the Commission intends to do. ......................................................................... 14

What other stakeholders can do ................................................................................. 18

VI.

Conclusions................................................................................................................ 22

Annex 1 Major trends in tourism: the scenario driving the future of the sector

Annex 2

Important challenges and major private and public governance objectives for the
sustainability of European tourism

Annex 3

Examples of initiatives and contributions of international and European
stakeholders

Annex 4 Community policies and initiatives with a favourable effect on the sustainability

of European tourism

Please note that all underlined parts in the printed version of the text are so because of
the  hyperlinks  inserted  in  the  electronic  version;  they  have  no  other  significance.

2

EXECUTIVE SUMMARY

Ensuring the economic, social and environmental sustainability of European tourism is crucial
both  as  a  contribution  to  sustainable  development  in  Europe  and  world-wide,  and  for  the
viability,  continued  growth,  competitiveness  and  commercial  success  of  this  economically
highly-important sector. The challenges for sustainable European tourism are linked to  both
the consumption patterns, in particular seasonal spread and travel for the purpose of tourism,
and its production patterns, i.e. the value chain and the tourist destinations. Sustainable tourist
behaviour and good public and private governance are key to changing unsustainable tourism
patterns.

Stakeholders  at  all  levels,  have  started  to  prepare  the  ground  for  better  matching  of
sustainability  requirements  in  tourism  and  using  its  potential  for  sustainable  development.
Although not specifically targeting the tourism sector, the European Community contributes
significantly  to  these  efforts  with  a  wide  range  of  policies  and  measures  that  favour
sustainable development, both in its global responsibilities and within the European Union.

The  Commission,  therefore,  considers  the  right  pathway  to  the  sustainability  of  European
tourism  to  be  reinforcing  the  existing  framework  for  action  and  making  best  use  of  it.  This
means  relying  mainly  on  the  positive  effects  of  established  Community  policies  and
measures, while enhancing them, and on initiatives in favour of the sustainability of tourism
that stakeholders other than the Community undertake in this field. Some specific measures to
fill gaps should complement this approach.

In  the  international  context,  the  Community  approach  is  thus  to  continue  its  policy  of
promoting the sustainability of tourism as a matter of trade and of assistance to the developing
countries. It seeks reinforced co-operation for sustainable tourism with United Nation bodies
and other international organisations, in respect of its global responsibility and in Europe.

The  Commission  envisages  several  measures  for  strengthening  the  Community  contribution
to the sustainability of European tourism. These aim at increasing the benefit from European
Governance  and  from  the  various  Community  policies  and  measures  affecting  European
tourism and its sustainability. The Commissions also wants to enhance co-operation with the
World Tourism Organisation and between all stakeholders of the tourism sector in Europe.

The  Commission  intends  to 
launch  a  Tourism  Sustainability  Group  composed  of
representatives of the various stakeholder categories. This group will have the task of drafting
a  detailed  framework  for  action,  which  allocates  specific  activities  to  the  individual
stakeholders and include an agreed timetable for implementation. The Commission is willing
to promote and support the implementation of activities defined by the group.

Specific  initiatives  will  concern  better  monitoring  and  reporting  of  the  sustainability  of
tourism, activities that further sustainable tourism consumption patterns by European citizens,
and  promoting  sustainability  in  the  tourism  value  chain  and  destinations.  The  development
and use of appropriate information tools and networks will assist these initiatives.

The Commission expects other stakeholders in Europe to contribute significantly to the efforts
for  implementing  sustainable  tourism.  This  concerns  European  citizens  and  tourists,  private
sector  enterprises,  tourist  destinations  and  public  authorities,  and  civil  society  stakeholders.
The Commission plans to regularly report back on the progress of implementing these basic
orientations.

3

I.

INTRODUCTION

Tourism is one of the most important and expanding sectors of the world economy and that of
the EU. It can contribute significantly to achieving the objectives of maintenance of high and
stable  levels  of  economic  growth  and  employment,  social  progress  which  recognises  the
needs  of  everyone,  and  effective  protection  of  the  environment  and  prudent  use  of  natural
resources. For this to be sustained globally and in the EU requires that stakeholders care for
the fabric on which tourism depends.

The  limits  of  the  natural,  economic,  social  and  cultural  resource  base,  which  define  the
economic  sustainability  of  the  sector,  would  be  unable  to  cope  with  indefinitely  continuing
expansion  of  European  tourism.  However,  with  specific  strategies,  tourism  activity  can  be
realigned  to  meet  sustainability  requirements,  new  challenges  and  demands  from  changing
tourism trends and activities (see Annex 1), and increase revenues.

The  Plan  of  Implementation  adopted  at  the  Johannesburg  World  Summit  on  Sustainable
Development  calls  for  a  focus  on  sustainable  tourism  development  and  outlines  actions  to
change unsustainable patterns of consumption and production, which are also highly relevant
for sustainable tourism. There is growing demand at European level for the identification of
strategic guidelines and measures necessary to achieve sustainable tourism development and
appropriate sustainable development models for each type of tourist destination.

In the same way that tourism is a global phenomenon that is shaped locally, the sustainability
problems linked to it range from global ones that need to be solved globally, to local ones that
require  action  on  the  ground.  However,  tourism  is  a  sphere  of  primarily  local  and  regional
responsibility. Tourism-related measures largely need to be devised and implemented locally,
in order to address the specific needs and limitations that exist.

On the other hand, many Community policies significantly affect the various activities of the
tourism sector. The choices made in these policies have a major effect on the development of
tourism and its sustainability, both generally and on the ground.

Article 2  of  the  Treaty  establishing  the  European  Community  lists  the  promotion  of
sustainable  development  of  economic  activities  as  one  the  Community's  tasks.  Tourism  has
great potential for contributing to the achievement of sustainable development objectives, and
Article 3(u) of the Treaty provides for Community action to comprise measures in the field of
tourism for the purposes set out in Article 2. The sustainability of tourism must be in line with
the  overall  orientation  for  sustainable  development  defined  for  the  EU  in  the  European
Sustainable Development Strategy (SDS).

Since  the  mid-1990s,  the  sustainable  development  of  tourism  has  become  a  priority  for  EU
Institutions.  In  its  Communication  Working  together  for  the  future  of  European  tourism  of
November  2001,  the  Commission  proposed  to  further  "promote  sustainable  development  of
tourism activities in Europe by defining and implementing an Agenda 21". This issue received
strong support from the European Parliament, the Council, the European Economic and Social
Committee and the Committee of the Regions.

This Communication aims at promoting further progress towards the sustainability of tourism
in Europe and worldwide. Its basic orientations provide the European Commission's input, at
this stage, to a broad Agenda 21 process  for  sustainable European tourism.  It is  intended to
stimulate multi-stakeholder efforts in this field, across all territorial and administrative levels,
and outlines how the Community and the other stakeholders can further contribute.

4

II.

CHALLENGES AND OBJECTIVES OF SUSTAINABLE TOURISM

(cid:1)  Main challenge: sustainable activity and growth

The central challenge for the tourism industry, its businesses and destinations, is: how can the
tourism  activity  in  Europe  and  world-wide,  and  the  growth  expected  over  the  next  two
decades, be managed in such a way as to ensure that it respects the limits of its resource base,
and of those resources' capacity to regenerate, whilst being commercially successful? As the
product  is  largely  based  on  environmental,  cultural  and  social  quality,  the  sector  -  if  not
managed  sustainably  -  is  at  risk  of  deteriorating  or  even  consuming  its  own  income-
generating resource base, and thus of being economically and socially unsustainable.

Sustainable  tourism  development  is  linked  to  a  growth  in  quality  rather  than  in  quantity.
Quality consciousness of tourists is also a prerequisite for sustainable development, and both
sustainability  and  quality  need 
the
competitiveness of the tourism sector. The competitiveness of tourism enterprises and tourist
destinations  requires  efficiency  that  can  pay  for  sustainability  and  an  optimal  sustainable
yield. In turn, quality of the workforce, regard for the local society, and a lower impact on the
environment set free money for resource-efficiency.

integrated.  They  are 

indispensable  for 

to  be 

The specific challenges of key importance for the sustainability of tourism (see Annex 2) exist
both throughout Europe and world-wide, but their specific nature and intensity may vary from
place to place. They are in general greater where tourism activity and dependence on tourism
are  particularly  high.  Moreover,  there  can  be  additional  challenges  specific  to  particular
geographical areas, such as the Mediterranean and the Alps. So-called mass tourism can also
be managed in sustainable ways: identifying and implementing them is a particular challenge,
but this promises to be the biggest contribution to the sustainability of tourism.

(cid:1)  A balanced approach to the three pillars of sustainability

Sustainable  tourism  is  tourism  that  is  economically  and  socially  viable  without  detracting
from  the  environment  and  local  culture.  It  means  business  and  economic  success,
environmental containment, preservation and development, and responsibility towards society
and cultural values three facets that are interdependent.

The sustainability of tourism concerns particularly important aspects such as competitive and
socially-responsible  tourism  enterprises,  the  possibility  for  all  citizens  to  participate  in
tourism, good employment opportunities in the sector and benefits from tourism activities for
local  communities.  It  requires  the  preservation  of  cultural  integrity,  the  incorporation  of
environmental issues and of the protection of heritage resources in tourism measures.

Multi-partnership solutions and good governance, which improve the participation of all the
stakeholders, offer the possibility of moving the industry forward and of overcoming lack of
coherence between the practices of these stakeholders.

(cid:1)  Sustainable consumption patterns

One of the most wide-ranging problems of leisure tourism in Europe is its  concentration  on
specific,  restricted  periods  of  the  year,  which  is  linked  both  to  climate  and  the  cultural  and
socio-economic  rhythm  of  everyday  life.  This  result  in  temporary  saturation  of  the
communication  infrastructure,  tourist  facilities,  and  the  carrying  capacity  of  destinations,
which gives rise to reduced quality.

5

While  beneficial  to  the  recovery  of  resources  and  local  society,  off-season  operation  needs
and leaves  enormous over-capacity.  It  requires  a  very  large  workforce  that  lacks  permanent
employment  and  often suffers poor  conditions,  with negative effects  on qualification  levels,
service quality and business competitiveness. This explains why the sector cannot attract and
retain the workforce required.

The second crucial influence on sustainability, mainly from an environmental point of view,
stems  from  the  transport  needed  for  travelling.  The  tourism  boom  of  the  past  50  years  has
been  made  possible  mostly  with  the  help  of  environmentally  less-friendly  car  and  air
transport, which has become increasingly easier and cheaper. This has encouraged the use of
the car also for long-distance travel and boosted tourism air travel, including short-haul trips.
Today,  there  is  a  growing  tension  between  the  development  of  European  transport
infrastructure  and  services,  the  mobility  requirements  of  tourism  in  the  context  of  available
connections to destinations, the capacity to serve them, and related costs.

However, travel intensity in Europe will increase further. Tourists are increasingly opting for
more  individual  choices  and,  largely  through  the  use  of  electronic  means,  this  involves
looking for personally-tailored products and trying to optimise the ratio between quality and
positive experience, on the one hand, and the price of the product, on the other.

Alongside the significant growth in tourism, a changing demographic structure will result in
the demand for types of tourism changing. For example, cultural and natural heritage tourism
is expected to grow the most. However, for the entire tourism population the traditionally big
segments, the  so-called mass tourism that  is overwhelmingly  controlled  by  the  international
tour operators, will continue to be the most important ones in terms of quantity.

In addition, more tourists with special needs that must be catered for to enable them to fully
benefit  from  tourism  want  to  travel.  Apart  from  the  10 %  of  the  population  formally
recognised as disabled in one way or another, a growing number of tourists can be expected to
suffer from reduced mobility as a result of a temporary disability or age.

Consumer behaviour as a result of price, quality and image is almost exclusively determined
by  individual  interest.  Currently,  few  tourists  are  interested  in  sustainability.  But,  by
informing consumers adequately through easily  understandable  messages  within  the  sector's
broadly  distributed  means  (promotion  brochures,  catalogues  and  guide  books),  developing
their sustainability thinking, and influencing and convincing people through clear signals, it is
possible  to  provoke  sustainable  consumption  patterns,  triggering  changes  in  the  product
offered.  Young  people  are  a  particularly  important  target  group  in  this  respect.  This  must
include raising consciousness of quality as an integrated product feature and new approaches
to get the message across to tourists that quality and sustainable tourism have their price.

(cid:1)  Sustainable production patterns

Sustainable value chain

As is the case with the consumers, tourism suppliers follow traditional behavioural patterns,
often  bound  by  narrow  economic 
imperatives,  particularly  pronounced  vertical
interdependence  between  tourism  businesses  providing  the  various  components  of  the
extremely diverse and composite tourism product and decisions based on price.

Sustainable  tourism  value  chain  management  involves  competitive  enterprises  and  a  level
playing field for competition. It is related to quality management for the production of goods

6

and  services.  For  economic  profit  not  to  be  produced  at  the  expense  of  social  and
environmental aspects, the sector needs to internalise socio-economic and environmental cost
to get its prices right, mainly through the use of appropriate market-based systems.

Sustainable  tourism  value  also  means  optimising  employment  and  social  benefits,  i.e.  the
sector's  enterprises  implement  the  concept  of  corporate  social  responsibility.  This  includes
learning opportunities and good quality jobs for qualified and motivated staff to provide high-
quality  tourism  services,  certification  systems  to  promote  sustainable  production  and
consumption patterns, and the use of innovation and new technologies where appropriate.  It
also requires strengthened social dialogue and additional power given to the social partners at
all levels of conception and implementation.

Sustainable destination development

Together  with  the  individual  service  components  of  the  value  chain,  the  destination  as  a
whole forms the overall tourism product. The different activities and policies of destinations
that combine public and private interests are therefore important for sustainable production. In
most  parts  of  Europe  the  traditional  cultural  landscape  provides  the  suitable  natural  and
cultural  resource  which  is  a  prerequisite  for  the  tourism  product.  Heritage  resources,  the
communications infrastructure, hospitality and tourist facilities are further basic resources of a
tourist destination. Wise land-use is a crucial factor in sustainable destination development.

Tourism  requirements  in  this  respect,  and  in  relation  to  local  cultural  identity  and  local
resident needs, have in some cases generated tensions at destination level. Competitive high-
quality tourism needs to respect the carrying capacity of its natural and cultural areas. A range
of destinations - in particular some coastal zones and islands in the southern part of Europe,
some mountain resorts and certain cities - have experienced the negative effects of a tourism
development  to  a  level  that  exceeds  their  carrying  capacity.  Furthermore,  where  the  local
development of destinations with a limited economic base, such as islands,  is  heavily based
on tourism, this  risks resulting in  a  fragile  and  over-dependent  'mono-economy'  without  the
desired indirect effects on other aspects of the local economy, such as agriculture and crafts.

Added  to  this  are  two  regionally  very  different  phenomena  closely  connected  to  tourism:
secondary and third-age residence in many European tourist destinations, and one-day visits,
which  at  certain  locations  within  easy  reach  of  agglomerations  can  far  outweigh  normal
tourism  activity.  Although  in  most  cases  combined  with  relatively  low  spending,  such
activities  can  help  to  mitigate  the  negative  effects  of  off-season  low  demand.  But  it  is  far
more likely that, in addition to certain permanent negative local impacts such as contributing
to the urbanisation of valuable landscape and increased land prices and costs of living, high
numbers  of  day-visitors  at  weekends  and  holidays  with  good  weather  or  for  special  events
during  high  season  will  considerably  increase  demand  and  pressure  on  resources,  transport
infrastructure and services used by tourism, except for accommodation.

Ensuring  good  prospects  for  European  tourism  requires  the  preservation  of  its  regional
diversity as a competitiveness asset, ensuring quality and considering community well-being
in  tourist  destinations,  conserving  or  restoring  European  coastal  zones  and  mountain  areas,
protected areas and cultural heritage sites as the basis for attractive destinations, protecting the
environment and heritage resources, and using them wisely, and promoting sustainable inter-
and intra-destination mobility. It also depends on a level playing field for the local providers
in relation to those who market the tourist product and requires tourism-generated profits to
flow back to the destinations.

7

III.

WHERE WE STAND: THE STATE OF THE ART

Many initiatives

Many  stakeholder  groups  have  started  to  respond  to  the  challenges  (see  Annex  3).  Basic
orientations for the sustainability of European tourism can build upon a large amount of work
and documents outlining important processes and principles. Networks are being established
to exchange or divulge useful information and to encourage the uptake of best practice.

Through a set of policy measures, also the European Community has started to contribute to
sustainability, including that of tourism, both in a global and a European context (see Annex
4). Although they mainly target sustainability issues more generally, across economic sectors,
these elements can significantly contribute to the development of European tourism.

European tourists globally represent the biggest demand, and European companies the biggest
stake  in  international  investment  in  the  tourism  sector.  In  the  public  sphere,  in  accordance
with  the  current  work  at  international  level,  the  EU  assists  tourism  development  as  an
important tool in fighting poverty and improving social conditions, especially in the world’s
poorest  countries.  In  1998  the  Commission  presented  A  European  Community  strategy  to
support  the  development  of  sustainable  tourism  in  the  developing  countries  as  an  essential
policy base, which the Council took up in a Resolution of 30 November 1998.

The  Community's  global  responsibility  also  extends  to  sustainable  trade  in  services.  In
addition  to  implementing  existing  commitments,  the  Community  wants  to  further  liberalise
the  tourism  sector  in  the  framework  of  the  World  Trade  Organisation-GATS.  Remaining
restrictions to trade in this sector need to be substantially reduced in a way that is compatible
with other agreements supporting sustainability and does not negatively affect the conditions
of  local  communities  and  their  rights.  Neither  should  the  right  of  local  governments  to
determine sustainable tourism development, the local natural and cultural assets, the quality of
service, protection of consumers' and workers' rights, or public safety be reduced.

The  sustainability  of  tourism  in  the  Mediterranean  basin  is  a  particular  challenge.  It  could
profit  from  an  improved  Euro-Mediterranean  Partnership  and  from  Community  support  to
implementation of the  MEDA programme, in particular when  regional  authorities  and  other
stakeholder categories important for tourism are associated as partners. Likewise, the fragile
areas in the North of Europe could benefit from enhanced partnership in this region.

The European Environmental Agency has established some key indicators and is working to
develop a ‘Tourism and environment reporting mechanism’. In addition, the European Spatial
Development Perspective (ESDP) is a reference for territorial development regarding tourism,
as  is  the  Protocol  on  Tourism  and  Recreation  under  the  Alpine  Convention.  For  these
initiatives, transposition to the regional and local level will be important to mark progress.

At  a  national  level  certain  countries  are  drawing  up  National  Sustainable  Development
Strategies  that  include  tourism  or  more  specific  tourism  sector  national  plans.  Regionally,
several tourism monitoring and indicator system prototypes are being designed and tested.

Slow progress

Despite  these  many  initiatives,  which  exist  from  international  down  to  local  level  and  are
available  everywhere,  there  is  still  no  significant  change  from  unsustainable  patterns  of
consumption and production in European tourism. European tourism is not yet adapting in a
fundamental manner to sustainability requirements with regard to tourism transport and to the

8

seasonal  spread  of  leisure  tourism  and  its  economically,  socially  and  environmentally
unsustainable effects. Nor has there so far been sufficient effect on production in the tourism
value chain or on tourist destination development.

Apparently,  there  is  neither  the  information  nor  the  incentive  to  take  up  these  initiatives
sufficiently on the ground, where tourism is shaped. Since socio-economic and environmental
costs  are  not  internalised,  there  is  rather  an  adverse  incentive.  Furthermore,  consumption
behaviour  is  formed  individually,  and  tourism  takes  place  locally.  Policies  targeting  them
need  to  be  devised  and  implemented  at  this  level.  The  success  of  sustainable  production
initiatives and contributions is thus determined principally at SME and local destination level.

One  major  handicap  for  transposing  initiatives  into  successful  concrete  action  at  the  'sharp
end' of the industry is that managers’ face many issues and their priorities are determined at
the local market level. In addition, there is poor communication from the top down: messages
formulated  in  complex  language  at  high  level  do  not  reach  local  and  regional  players  and
citizens.  Making  publications  available  and  Internet  dissemination  do  not  create  sufficient
ownership  on  the  ground.  Tourists  generally  do  not  have  access  to  or  understand  the  rather
complicated  information  needed  to  assess  the  sustainability  effects  of  their  behaviour.
Therefore, action is needed to associate, involve and address these players more directly, and
to formulate easily accessible messages that are easy to understand.

IV.

FACING THE CHALLENGES: THE POLICY OPTION

The  slow  progress  recorded  suggests  that  the  economic,  social  and  environmental
sustainability  of  European  tourism  as  a  contribution  to  sustainable  development  both  in
Europe  and  worldwide,  and  as  a  condition  for  the  viability,  growth,  competitiveness  and
commercial  success  of  the  sector,  needs  a  reinforced  approach  that  addresses  the  various
challenges in a coherent manner. This approach must build on the involvement and optimum
active contribution of all stakeholders concerned, at all levels, and focus on:

(cid:1)  The merits of subsidiarity and of the prevailing ‘bottom-up’ approach to address the issues;

(cid:1)  The need to look at individual components, sub-sectors, areas and aspects,  and  particular
problems related to them, rather than treat tourism and its sustainability as a single issue;

(cid:1)  Consumer  information  to  ensure  market  forces  are  exerted  to  promote  sustainable

consumption and production patterns;

(cid:1)  The need to recognise the particular nature of SMEs and micro-enterprises;

(cid:1)  The  need  to  ensure  the  social  and  economic  viability,  as  well  as  the  environmental

sustainability, of rural and coastal communities.

These considerations need to be taken into account when choosing the European Community
policy option to face the challenges for the sustainability of European tourism. An extended
impact  assessment  of  possible  policy  options  and  the  public  consultation  show  that  both  a
comprehensive approach shaped as a genuine Community policy, and the total renunciation of
Community  activities  in  this  context  are  to  be  ruled  out  (see  SEC(2003) 1295).  Instead,  the
existing framework for action should be reinforced and used to the best advantage.

9

Feedback on the comments received during the public consultation

This also takes account of the majority of comments received during public consultation held
in  preparation  of  this  Communication  (see  SEC(2003) 1295,  chapter  7.  and  appendix).
However,  some  went  largely  beyond  the  scope  of  the  subject  matter,  targeting  general  or
global sustainability issues or representing extreme views, so that a feedback was not possible
or not appropriate in this context.

As a result of the public consultation, the Commission confirms that there are many models
for  achieving  sustainable  tourism  development,  that  tourism  and  its  sustainability  are
primarily consumer driven, and that economic success is essential for achieving sustainability.
This requires an approach that targets as many stakeholders as possible, favouring consensus-
building. The consultation also resulted in a reinforced recognition of the territorial (land use)
dimension, and of the issues linked to climate change, for sustainable  tourism. Although, to
some extent, seasonal spread is one of the issues of tourism sustainability hard to deal with, it
is a major challenge that needs to be considered in a European context.

The  Commission  does  not  favour  the  idea  of  introducing  regulatory  instruments  because
voluntary  instruments  developed  for  sustainable  tourism  have  had  of  little  success  so  far.
However,  in  exceptional  cases  regulation  cannot  in  principal  be  excluded,  if  it  is  part  of  a
recognised  Community  policy.  Taking  account  of  comments  referring  to  co-ordination  and
integration of the various existing Community policies affecting tourism sustainability, also in
relation  to  liberalisation,  the  Commission  confirms  its  intention  to  reinforce  integration  of
sustainability  concerns  into  Community  policies  and  initiatives  affecting  European  tourism
and to enhance their effect on it in order to support the sustainability of the sector. It follows
the line of dealing with all aspects of sustainability and not only selective ones.

Although these basic orientations foresee  that  measures will be  gradually shaped during  the
process  still  to  come,  they  are  as  concrete  as  possible  with  regard  to  specific  measures.  In
general, the  comments strongly supported the suggested measures, and added further  details
or  precision.  But  a  number  of  them  wanted  the  conception  of  action  and  the  Community
contribution extended, mostly requiring, in one form or another, specific Community funding
for sustainable tourism  or  measures  that would  need considerable  financial  commitment. At
this stage, it is not intended to give follow-up to these requests.

Regarding  a  Tourism  Sustainability  Group,  a  few  comments  questioned  its  usefulness,
whereas others confirmed that such a group is key to the success of efforts. While local and
regional authorities representation in this group was strongly supported, opposition arose to it
being led by the tourism industry, even from the industry itself. Indeed, the creation and work
of  this  group  is  seen  as  a  crucial  measure,  but  its  details  take  account  of  the  comments
received. Chapter V.3. also largely integrates the comments with regard to the other measures,
but the process still to come will define how they will be shaped and implemented in detail.

Regarding  the  contribution  of  other  stakeholders,  the  comments  received  added  useful
information, and put additional emphasis on consumers and on the importance of education in
this respect. The importance of those stakeholders that operate on the ground was particularly
underlined, whereas that of international stakeholders was viewed with some reservation. For
the major part these comments were used to enrich, to revise and to fine-tune chapter V.4. But
they also showed the need to further discuss controversial issues, such as the sustainability of
so-called  mass  tourism,  the  potential  market  dominance  of  major  tour  operators,  and  the
usefulness of environmental taxes, in particular at tourist destinations.

10

The two basic elements of a feasible way forward for facing the challenges are reliance on:

(cid:1)  effective implementation of existing initiatives and reinforced efforts of stakeholders, other

than the Community, who are active in this field; and

(cid:1)  Community activities, of which two basic types can be distinguished:

–  optimising the effect of Community policies and measures on the sustainability of

European tourism, and

–  the definition and implementation of complementary tourism-specific measures to
promote  sustainability  throughout  the  Community,  which  particularly  target
support of and involvement in other stakeholders' initiatives, and which fill gaps
left by the Community policies and measures affecting tourism.

The Commission considers this  co-operative  and pro-active  multi-stakeholder  approach,
which also aims at bridging the remoteness of the Community from the players on the ground,
as the right road to the sustainability of European tourism

V.

1.

IMPLEMENTING  TOURISM  SUSTAINABILITY:  BASIC  ORIENTATIONS  FOR  A
EUROPEAN COMMUNITY APPROACH

The general concept of future action

Within and beyond Europe, the sustainability of European tourism needs policy measures at
every level from global to local, to address patterns of consumption and of production in the
tourism  value  chain.  Tourism  stakeholders  −  enterprises,  workers  and  destinations,  national
administrations, and regional and local authorities − bear the prime responsibility for defining
tourism  policy  frameworks  and  implementing  measures.  Self-regulation  in  the  various  sub-
sectors and at the appropriate levels, and the work of specialised international and European
bodies, including standardisation organisations, can spur progress in implementation.

Whilst action focusing  on  issues  linked  to  seasonal  concentration  and  on  sustainable  tourist
travel generally needs to be dealt with above the local and regional level, local authorities and
the tourism private sector are nonetheless the key stakeholders for the sustainability of tourist
products. They have to formulate their own Agenda 21 at local or sub-sector levels. To do so,
they  need  policy  hints  and  guidelines  resulting  from  a  voluntary  process,  broadly  based  on
regional,  local  and  non-public  stakeholder  involvement,  albeit  endorsed  at  European  level.
Bodies  representing  the  tourism  industry,  regional  and  local  authorities  and  civil  society
interests need to commit themselves to this process, contributing their knowledge, experience
and views and promoting the message to public and private players at all territorial levels.

The  overall  approach  of  the  European  Community  will  rely  essentially  on  initiatives  by
directly  responsible  and  specialised  stakeholders,  and  on  activities  under  those  Community
policies that affect the sustainability of European tourism. Its implementation needs to reflect
the fact that the level of tourism activity and dependence on tourism vary across Europe's vast
and  diverse  territory,  as  do  the  intensity  and  specific  nature  of  challenges  for  the  tourism
industry and for sustainability.

The  great  diversity  of  European  tourism,  the  subsidiarity  principle  and  the  lack  of  specific
powers  in  this  area  mean  that  the  European  Community  itself  can  only  undertake

11

complementary  activities,  and  encourage  stakeholders  to  put  policy  measures  into  practice,
inter alia by:

(cid:1)  stimulating  the  coherence  and  effective  contribution  of  Community  policies  and  of

complementary measures in the sphere of tourism,

(cid:1)  actively participating in global and international processes, interlinking with international
governmental bodies, and bringing together the activities of major international players,

(cid:1)  practising and promoting the principles of good governance, through:

–  ensuring  adequate  Impact  Assessment  of  any  relevant  Community  measure  or

initiative,

–  furthering the coherence of national policies in relation to Community activities,

and between the policies of the different Member States,

–  liaising, consulting and co-operating with international  and European non-public
bodies that represent the tourism industry and other stakeholder interests, and

–  furthering good governance at all levels and encouraging the various stakeholders,
as well as their representative bodies, to find joint approaches to sustainability in
the different tourism sub-sectors;

(cid:1)  helping  European,  national,  regional  and  local  private  and  public  stakeholders  to  assume
their responsibilities for the sustainability of tourism production, in particular through:

–  the use of available Community instruments,

–  promoting  the  exchange  of  good  practice  and  dissemination  of  information,  and
flexible  co-operation,  partnership  and  networking  between  stakeholders  across
Europe, and

–  drawing  together  expertise  on  under-researched  issues  in  order  to  contribute  to

stakeholder guidance.

2.

a)

The European Community contribution

In the international context

The Community will continue its policy with regard to sustainable trade in services (including
environmental  considerations), 
international  environmental  governance,  and  positive
synergies between trade liberalisation, economic growth, environmental protection and social
development, using Sustainability Impact Assessment (SAI).

The  WSSD  Plan  of  Implementation  put  emphasis  on  sustainable  tourism  development  as  a
contribution  to  social,  economic  and  infrastructure  development  and  to  sustainable
development in the developing parts of the world, and as an issue of protecting and managing
the natural resource base of economic and social development. The Community will examine
how this emphasis can be better reflected in its Development Policy and aid programmes. It
will continue to  ensure that the Commission's European Community strategy  to  support  the
development of sustainable tourism in the developing countries of 1998, and the subsequent
Council Resolution of 30 November 1998, guide the relevant measures.

12

Increasing  the  emphasis  on  sustainable  tourism  development  in  developing  countries  could
include  considering  joining  forces  with  the  United  Nations  Conference  on  Trade  and
Development (UNCTAD) and with the World Tourism Organisation (WTO) to step up work
on its Sustainable Tourism - Eliminating Poverty (ST-EP) special initiative. The Community
intends  to  reinforce  its  co-operation  also  in  other  relevant  initiatives  undertaken  by
international bodies, such as the United Nations Environment Programme (UNEP), the WTO,
and the International Council for Local Environmental Initiatives (ICLEI).

b)

Within Europe

With regard to a demand-oriented approach and to improving the stakeholder value chain and
destination development, focal areas of action will be:

(cid:1)  consumer-oriented awareness raising,

(cid:1)  multi-stakeholder partnerships and networks,

(cid:1)  governance and policy integration at each level,

(cid:1)  capacity building, good practice and stakeholder commitment to sustainability, and

(cid:1)  multi-stakeholder monitoring and reporting.

Sustainable  tourism  information,  policy  tools  and  best  practice  need  further  development.
There  is  an  urgent  need  for  reliable  carrying  capacity  analysis  techniques,  development  of
user-friendly  sustainability  reporting  mechanisms,  and  better  statistical  monitoring  and
indicator  systems  to  provide  information  for  managing  tourism  supply  and  demand.  These
tools need to be conceived in such a way as to be optimally adapted to local conditions.

3.

What the Commission intends to do.

The  Commission  is  planning  a  number  of  provisions  for  putting  the  further  European
Community contribution to implementing tourism sustainability into concrete form.

a) 

Firstly,  the  Commission  will  use  suitable  working  arrangements  to  enhance  the
contribution of Community policies to the sustainability of European tourism.

The  Commission  will  use  the  Impact  Assessment  tool  to  integrate  sustainability  concerns
into Community policies and initiatives affecting European tourism.

Impact Assessments undertaken in  preparation  for  the  Commission's  annual  Legislative  and
Work Programme, and during its implementation, help  to  identify beforehand the initiatives
that  are  likely  to  affect  tourism.  They  should  make  it  possible  to  evaluate  the  potential
contribution  of  these  initiatives  to  furthering  the  sustainability  of  tourism.  Reinforced
consultation and dialogue, both with interested parties and within the Commission, provide an
opportunity to bring the concerns of all tourism stakeholders to bear.

The Commission will prepare and implement an internal work programme for enhancing the
effect  of  the  various  Community  policies  on  European  tourism  in  order  to  support  the
sustainability of the sector.

13

With  regard  to  the  Community  policy  fields  that  affect  the  wide  range  of  challenges  to  be
addressed,  this  work  programme  will  aim  at  both  improving  the  effectiveness  of  existing
legislative  and  non-legislative 
initiatives  where
appropriate. Based on a detailed analysis of the various Community policies, it will be a joint
open  co-ordination  effort  between  the  stakeholders  and  Commission  services  concerned.  A
guide will indicate the Community support available for the sustainability of tourism.

instruments  and  defining  additional 

Policy  fields  relating  to  entrepreneurship  and  competitiveness,  employment,  learning  and  a
skilled workforce, good environmental performance as well as natural resources and cultural
heritage, are examples of subjects that require special attention. However, this work will also
include  the  issue  of  how  the  Community  can  help  to  improve  data  and  indicators  on  the
sustainability  of  European  tourism.  Based  on  the  methodological  work  done  in  the  field  of
tourism  and  environmental  research  and  statistics,  Eurostat  intends  to  elaborate  a
methodological manual for the measurement of the sustainable development of tourism and to
test  a  selected  number  of  indicators  with  its  help.  The  results  of  this  work  are  expected  to
deliver recommendations on how to compile statistical data on tourism sustainability.

b) 

Secondly, the Commission will encourage stakeholder synergies and co-operation.

The  Commission  will  develop  a  co-operation  agreement  with  the  World  Tourism
Organisation (WTO) in the field of sustainable tourism.

The agreement is intended to identify the fields and measures of co-operation, in two respects:
(1)  specific  arrangements  regarding  WTO  initiatives  for  sustainable  tourism  which
particularly  target  Europe;  and  (2)  European  Community  technical  co-operation  in,  and
support  for,  global  WTO  initiatives  for  sustainable  tourism  and  their  implementation  in
Europe.  This  can  also  include  activities  in  developing  countries  for  the  promotion  of
sustainable tourism development as a  contribution to poverty  alleviation, in connection with
the above-mentioned ST-EP initiative.

The Commission favours  the  involvement  of  EU  Member  States  (in  their  capacity  as  WTO
members), of  the  tourism  industry  and  the  civil  society  groups  concerned,  and  of  any  other
appropriate stakeholder, in the preparation of the agreement and its implementation.

The Commission will launch a Tourism Sustainability Group composed of representatives of
the  various  stakeholder  groups,  with  the  task  of  steering  and  monitoring  the  coherent
implementation of specific activities to be undertaken by these stakeholder groups.

To be effective, this group, which is crucial for implementing tourism sustainability, must be
a joint effort between all the stakeholders concerned, using the method of open co-ordination.
The Commission  will  define the initial representation  in  close  consultation  with  the  various
stakeholder  representatives.  In  co-operation  with  public  stakeholders  at  various  levels  and
civil society organisations, the different core players in the European tourism industry need to
show particular commitment to, and ownership of, this group.

A  first  task  of  the  group  will  be  to  draft,  discuss  and  table  a  detailed  framework  for  action
which  allocates  specific  activities  to  the  individual  stakeholder  groups,  includes  an  agreed
timetable  for  implementation,  and  forms  a  very  important  further  contribution  to  the  broad
European Agenda 21 process for sustainable tourism. The Commission would be prepared to
contribute to the multi-stakeholder efforts with activities as specified below, under c).

14

The  group  will  also  be  responsible  for  regularly  evaluating  the  implementation  of  the
measures provided for in the framework for action. It will be asked to set up and manage at
European  level  a  system  to  monitor  the  sustainability  of  the  tourism  sector.  This  will  also
make it possible to report periodically on progress made in this field. For this purpose, and as
a  tool  to  fulfil  the  Community  commitments  undertaken  in  the  international  context,  the
Commission  will  continue,  together  with  other  public  and  private  stakeholders,  the  work
undertaken in the field of sustainable tourism indicators.

The Tourism Sustainability Group needs to provide value also for the players on the ground.
It can guide the use of the Local Agenda 21 tool in tourist destinations, and the preparation of
a model for local destination monitoring and indicator systems to ensure that destinations do
not  follow  divergent  monitoring  principles  and  deliver  comparable  results.  It  can  also
encourage the bottom-up development of tools and good examples of tourism sustainability,
adapted to local conditions.

c) 

Thirdly,  the  Commission  could  assist  the  promotion  of  sustainable  patterns  of
tourism  consumption  and  production,  and  the  better  transfer  of  approaches,
initiatives, instruments and good practice to the players on the ground.

It will focus on promoting and strengthening voluntary efforts and change in the realm of the
various stakeholders, their capacity building, and the exchange and take-up of good practice.

(cid:1)  Regarding sustainable tourism consumption in Europe, the Commission wants an initiative
that  involves  all  stakeholders  and  focus  on  the  two  core  issues  of  sustainable  consumer
choices  in  leisure  tourism,  i.e.  appropriate  seasonal  spread  and  sustainable  tourism
transport. Stakeholders with a major influence and/or knowledge in this field should meet
regularly to address the problem of the seasonal character of tourism. They should appraise
the  evolution  of  seasonal  spread,  its  consequences  and  the  factors  influencing  it,  and
develop ideas for improving it and mitigating negative effects of seasonal concentration.

Concerning sustainable tourism transport, the Commission is already launching a specific
action  targeting  this  issue  from  a  European  perspective,  which  aims  at  involving  all
stakeholder  groups  concerned.  After  the  current  preparatory  phase,  and  based  on  solid
information  on  the  tourism  travel  behaviour  of  Europeans,  it  will  examine  whether  it  is
possible  to  produce  a  quantitative  model  and  a  stakeholder-oriented  assessment  of  the
transport-related  impact  of  current  European  tourism.  A  competition  for  innovative
approaches and sustainable production and consumption patterns in European tourism with
more sustainable transport uses run by the European tourism sector might follow.

Furthermore,  the  Commission  will  examine  how  to  promote  effective  consumer-oriented
stakeholder  initiatives,  including  those  undertaken  by  the  media.  Such  initiatives  aim  at
raising awareness and developing sustainability thinking with regard to tourism activities.
They need to provide consumers with the necessary transparent information, for example
on the advantages and disadvantages that specific tourist products have for sustainability.
This  can  favour  sustainable  tourism  consumption  attitudes  and,  increasingly,  change
unsustainable  patterns  of  tourism  and  create  incentives  for  sustainability.  Some  of  the
issues  will  be  to  better  understand  tourists'  consumption  patterns,  to  provide  easily
accessible  messages  in  simple  language  (e.g.  in  the  form  of  a  Charter  of  the  rights  and
duties of tourists), and to further the tourism sustainability education of young people.

(cid:1)  Regarding  initiatives  for  encouraging  the  development  and  adoption  of  good  practice  in
sustainable production throughout the European tourism sector and among its stakeholders,

15

the Commission favours in particular promoting the principles of governance and fostering
Corporate  Social  Responsibility  (CSR)  practices  as  a  specific  initiative  within  the
European Multi-stakeholder Forum on CSR. Focusing on the enterprises of the sustainable
value  chain,  in  particular  SMEs  and  micro-enterprises,  this  needs  to  involve,  for
implementation purposes, appropriate intermediaries to reach these enterprises.

Concrete activities to which the Commission could contribute include:

–  co-operation in the UNEP co-ordinated Tour Operators Initiative and in efforts to
extend this approach to other tourism branches and to European tourism SMEs,

–  tourism  sector  multi-stakeholder  platforms  for  promoting  the  different  elements
and tools to implement CSR practices among European tourism enterprises, and

–  multi-stakeholder efforts for sustainability in the tourism value chain, in particular
with  regard  to  awareness  raising,  effective  communication  and  dissemination  of
knowledge,  and  on-the-ground  promotion  of  CSR  and  its  elements,  such  as
learning,  working  and  social  conditions,  sustainable  products,  and  sustainability
reporting and transparency.

(cid:1)  Likewise,  activities  have  to  specifically  target  tourist  destinations,  promoting  their
sustainable  development  and  management,  and  a  strengthened  ability  of  local  players  to
better  take  into  account  the  spatial  and  land  use  dimension  of  tourism.  The  Commission
could contribute to such activities by  supporting and co-operating in, for example:

–  large-scale initiatives to achieve a wide use of the instrument of Local Agenda 21
in  European  tourist  destinations  as  a  central  effort  for  sustainable  tourist
destination  development  and  management,  and  corresponding  encouragement
measures,

–  the development, refinement and use of reliable and locally adaptable techniques
to  analyse,  manage  and  enhance  sustainable  tourism  carrying  capacity  and  its
different  elements,  including  the  assessment  of  the  mutual  impacts  between
tourism  and  cultural  heritage,  which  needs  pursuing  research  and  taking  into
account the potential input of cultural heritage research for sustainable tourism,

–  exchange between European tourist destinations on sustainable  development  and
management 
instruments,
implementation  of  the  carrying  capacity  concept,  integrated  management  of
quality  and  of  sensitive  areas  and  sites,  and  sustainability  monitoring  and
reporting of tourist destinations,

the  use  of  market-based 

including 

issues, 

–  a  bottom-up  approach  to  define  and  implement,  together  with  Member  States,
regional  and  local  authorities  and  their  representative  bodies,  and  bodies
representing  European  tourist  destinations,  awareness  campaigns  and  effective
communication  and  dissemination  of  knowledge  on  these  issues  of  sustainable
tourist destination development and management, and

–  the development and dissemination of good practice.

These  initiatives  also  need  to  emphasise  the  positive  link  between  the  sustainability  and
quality of tourism, be it from the consumption or the production point of view. Sustainability

16

is part of the quality of the tourist product, the value chain and the destinations. Tourists must
be  made  aware  of  the  fact  that  sustainable  quality  has  its  price  and  that  this  price  is  worth
paying.

For some of the above purposes, the Commission will examine the possibility of using target-
based tripartite agreements or similar arrangements  when  other  stakeholders  are involved in
addition to public authorities.

(cid:1)  Furthermore,  the  Commission  favours  the  creation  and  use  of  information  tools  and
networks,  which  involve  and  target  the  different  types  of  stakeholders,  for  good
governance  at  destination  and  enterprise  level,  and  for  disseminating  good  practice.  This
includes  fully  exploiting  the  potential  for  better  use  of  information  and  communication
technologies (ICT). These can facilitate direct dialogue between the various stakeholders,
help  develop  it  at  the  interface  between  tourists  and  tourism  operators,  and  can  be  used
regularly to evaluate progress towards the sustainability of European tourism.

Provided  they  deal  with  relevant  considerations  in  sufficient  breadth,  the  subject,  nature
and  origin  of  the  tools,  networks  and  stakeholders  can  be  as  wide  as  possible.  In  this
context, the Commission will also seek a solution to ensure long-term viability, up-dating
and  wider  use  of  helpful  tools  and  networks  that  have  already  been  created  with
Community financial support.

4.

What other stakeholders can do

The  Commission  expects  the  stakeholders  to  be  involved  with  these  measures  and  to
contribute  to  the  utmost  to  ensuring  their  success.  While  emphasising  the  interrelationships
between  the  contributions  of  national  governments,  tourist  destinations  and  their  local
authorities, and private enterprises, it sees the following roles for the various stakeholders:

(cid:1)  European citizens and tourists

For  tourism  to  be  sustainable,  citizens  must  increasingly  become  responsible  tourists  who
generally  favour  sustainability,  and  tourism  professionals  need  to  commit  themselves  to
sustainability.  All parties should seek out,  and  be actively provided with, better  information
about sustainable tourism, and be willing to make responsible purchasing and travel decisions.

Sustainable tourism can only be a success if consumers buy its products. Clear information,
awareness and media presentation are crucial concerns, both for the tourist and his behaviour,
and  for  the  citizen  in  the  tourist  destination.  Coherent  and  reliable  pointers  to  identify
sustainable tourism products and services will help tourists to make informed choices on what
products to buy and from whom, with whom they travel, and who deserves their loyalty.

(cid:1)  Private sector enterprises and social partners

In tourism, as in other sectors, better use of the wide range of available pertinent instruments
and  tools  helps  to  develop  products  which  respond  both  to  changing  and  new  markets  and
business  messages  that  favour  sustainability  and  to  increasing  sustainability  requirements.
The tourism trade can influence tourist consumption patterns with regard to seasonal spread,
transport and sustainable products, for instance through information and pricing.

Getting  the  price  right  means  recognising  the  costs  of  and  opportunities  for  implementing
sustainable patterns of production and consumption, making consumers and producers pay the

17

full  social  and  environmental  costs  of  their  activities,  and  accounting  for  wider  economic,
environmental and social costs and effects. In this context, the tourism trade should develop
and  propose  solutions  to  achieve  sustainability  that  are  feasible  in  a  situation  of  low  profit
margins and low spending by tourists.

Open governance requires businesses to assume responsibility in conducting their operations
in  an  economically  viable  manner  that  takes  into  account  environmental  and  social  issues.
This means full implementation of appropriate CSR practices for tourism value chain services
and enterprises of any kind and size, opting for sustainable methods and products, and using a
business assessment and reporting system that includes not only a financial, but also a social
and environmental balance sheet.

Transparent  product  information,  including  guidebooks,  helps  to  change  consumption
patterns, and opting for sustainable consumer lifestyle choices provides business advantages.
Recognised management, auditing, certification and product labelling make efforts visible and
attract sustainability-conscious consumers. Capacity-building,  learning programmes  for  staff
and enhanced e-business capability make it easier to adapt to the new way of doing business.

Participating  in  processes  such  as  Local  Agenda  21,  the  Integrated  Quality  Management  of
destinations,  and  the  preservation and maintenance of  heritage,  are  important  attributes  of  a
sustainably  managed  enterprise  within  the  tourism  economy,  and  prevent  potential  conflicts
and  sanctions.  A  responsible  attitude  to  destination  development  and  product  delivery  also
means involving local communities and indigenous peoples in the development approach by
discussing business policies and decisions with the local stakeholders.

The  tourism  economy  must  recognise  that  it  is  the  right  of  the  local  population  and  their
authorities  to  control  local  social  and  cultural  development  and  landscapes.  This  requires
business decisions that benefit local residents, tourists and the landscape, in particular when
the  product  is  based  on  indigenous  cultures  and  their  territories.  Enterprises  involved  in
tourism services and tourism development should participate in carrying capacity assessment
and the application of the tools used for respecting social and environmental requirements.

The other social partners, i.e. tourism workers  and  trade unions, can contribute to increased
job  opportunities  and  quality  employment  conditions.  Multi-activity  employment,  equitable
part-time  work,  improved  learning  opportunities,  and  integrated  work-unemployment-
education packages  can secure  longer-term job opportunities. This is  linked  to  the  issues  of
flexibility,  of  higher  levels  of  education  and  skills  on  the  part  of  employees,  and  of  an
approach to employment that is based on greater sector and geographical mobility.

The Commission sees a need for trade associations and other bodies representing stakeholder
interests to launch, at all levels, a broad discussion with their members on the sustainability of
the  sector  and  its  activities.  This  includes  sustainability  information  and  awareness-raising
measures,  and effective arrangements for self-regulation. They should also provide trend data
and sector information for better policy making with regard to tourism sustainability.

(cid:1)  European tourist destinations and public authorities

The  Local  Agenda  21  process  is  an  important  way  to  further  the  sustainability  of  tourist
destinations. Local governments play a key role as leaders, political promoters and facilitators
of  this  process,  guaranteeing  transparent  monitoring  and  assessment  with  sufficient
comparable data.  As  decision-makers  and honest brokers among  different  interests  they  can

18

combine  a  broad  knowledge  of  the  local  situation  and  players  with  extensive  responsibility
and power, and as disseminators they can reach almost all local stakeholders.

To best perform their task of providing a sustainable tourist product, tourist destinations and
public authorities at all levels of government should adopt the good governance principles of
openness and transparency, participation, accountability, effectiveness and coherence, and use
of  interdisciplinary  and  integrated  approaches.  They  should  activate  partnerships  of  public
authorities,  private  business,  and  other  civil  society  groups,  which  all  could  have  a  direct
input into these governance-by-partnership processes through appropriate stakeholder fora.

A diversified local economy helps  avoid the  negative  effects of a development  that  is  over-
dependent  on  tourism  and  provides  multi-activity  employment  opportunities.  Local  public
authorities also need to devise policies  for  coping  with  the  impacts of  secondary and senior
residence and day-visitors on their tourist destination,  and with destination life cycle  issues.
Inter-disciplinary land-use management at regional and local level is central to the process of
integrating  sector  and  thematic  considerations  in  tourist  destinations.  Impact  assessment
procedures  and  monitoring  and  indicator  systems  as  decision-support  mechanisms  should
assist policy integration and effective policy-making at regional and local levels.

Regional and local authorities play an important role in developing the practical instruments
that make those who generate social and environmental costs pay for them, this also being in
the  interest  of  discharging  public  budgets.  They  are  also  key  to  using  Structural  Funds  for
enhancing  the  sustainability  of  tourist  destinations  and  to  reporting  on  it.  Destinations  and
public authorities should assess whether public management balances economic development
with social cohesion and environmental protection and also use annual reporting systems that
comprise not only a financial but also a social and environmental balance sheet.

Most tourist destinations and public bodies need to improve sustainability performance. They
can  involve  themselves  in  the  development,  promotion  and  use  of  market  instruments,
voluntary  agreements,  and  labelling  and  certification  schemes.  They  can  influence  the
consumption  patterns  of  tourists  with  regard  to  seasonal  spread,  transport  and  sustainable
products, in particular through organisational measures, promotion and incentives.

Quality and carrying capacity considerations should guide the performance and development
of  tourist  destinations.  Together  with  other  public  and  private  stakeholders  active  in  their
territory, and with a view to creating 'Learning Areas' in the tourism sector, regional and local
authorities should implement suitable training and education schemes for sector practitioners.

Tourist  destination  managers  and  other  public  authority  bodies  need  to  be  familiar  with  the
core  documentation  of  sustainable  tourism.  Their  sustainability  knowledge  and  skills
enhancement should in particular target areas of strategic importance for sustainable tourism
development,  such  as  inter-disciplinary  teamwork,  monitoring  and  reporting,  use  of  new
technologies, networking mechanisms and workforce issues.

Local and regional governments and their representative bodies have a key role to play in the
changes and efforts needed to enhance the institutional capacity required to progress towards
the sustainability of destinations, and for furthering effective arrangements for self-regulation.

(cid:1)  International organisations and national governments

Continued  and  broadened  sustainable  tourism  efforts  on  the  part  of  relevant  international
organisations  and  bodies  will  allow  the  European  Community  to  reinforce  its  co-operation

19

and join forces  with  them  in  this  sphere,  while  benefiting  from  and  contributing  even  more
effectively to global experience and exchange of ideas.

However,  the  effective  implementation  of  the  many  international  and  European  activities
needs  important  efforts  to  be  undertaken  by  national  governments  and  tourism  authorities.
Member  States  should  actively  participate  in  the  initiatives  undertaken  by  international
organisations and bodies and support measures to promote tourism sustainability at any level
at which they have influence. The Commission calls on them to give high political importance
to the sustainability of tourism, including arrangements for the widest possible staggering of
holidays throughout Europe and making tourism consumption patterns an educational subject.

Tourism should be an important issue in National Sustainable Development Strategies, with
sufficient  room  for  regional  and  local  initiatives.  In  addition,  national  governments  have  a
particular responsibility for widely promoting the principles of good governance and for using
impact  assessment  procedures  and  monitoring  and  indicator  systems  as  aids  to  policy
integration and effective policy-making.

It is the role of national governments and regional authorities to give the necessary weight to
the  sustainable  development  of  tourism  and  its  infrastructure  and  to  assisting  sustainability
initiatives  and  capacity  building  of  other  tourism  stakeholders,  both  when  using  their  own
funds and those provided by the European Community. Planning use on an integrated basis,
and effective spatial planning, is key to moving towards sustainable tourism.

Member States and regions need to share good practice on issues such as sustainable transport
links, design of new developments, and large-scale visitor management techniques. Together
with international organisations, they have a vital role in providing and exchanging trend data
and  comprehensive  and  co-ordinated  statistical  knowledge  to  shape,  monitor  and  update
efforts for sustainable tourism , and in consistently evaluating their impact and the situation.

(cid:1)  Civil society groups

As  a  leading  voice  in  the  sustainable  development  implementation  process,  civil  society
groups  can  use  their  high  social  and  media  acceptance  to  favour  the  raising  of  consumer
awareness  and  a  sense  of  sustainability  on  the  part  of  the  tourism  workforce.  They  can
provide a valuable interface between citizens, authorities and the private sector.

Environmental  and  other  non-governmental  organisations  (NGOs)  can  assist  public  and
business  stakeholders  with  constructive,  solution-oriented  contributions  and  provide
innovative  approaches,  specific  solution-oriented  expertise  and  the  experience  from  pilot
projects. This should be combined with a deeper involvement in sustainable tourism policy-
making as well as the benefits of capacity-building measures. NGOs  would need to develop
their own effectiveness at  regional and local levels, so that representative associations could
interface with tourist destinations and public authorities in appropriate stakeholder fora.

VI.

CONCLUSIONS

The  Commission  expects  other  stakeholders  to  contribute  to  efforts  to  achieve  sustainable
tourism.  This  concerns  European  citizens  and  tourists,  private  sector  enterprises,  European
tourist destinations and public authorities, and civil society stakeholders.

20

It  would  like  to  begin  the  gradual  implementation  of  the  measures  selected  in  2004.  Its
intention  would  be  to  do  this  in  co-operation  with  the  Council,  the  other  Community
institutions  and  with  international  bodies  active  in  this  field,  as  well  as  with  the  active
participation of the tourism industry and civil society representatives.

The Commission expects to report back to the Council and other Community Institutions on
the progress  of implementation in the autumn of 2005 in a sufficiently-detailed  form  for  an
Agenda 21 for European tourism to be prepared no later than 2007. This can also serve as a
sector-specific contribution to the programme in support of European initiatives to accelerate
the  shift  towards  sustainable  consumption  and  production,  as  provided  for  in  the  Plan  of
Implementation adopted at the Johannesburg World Summit on Sustainable Development.

21

Annex 1

Major trends in tourism: the scenario driving the future of the sector

European tourism today

Tourism and its growth continue to be one of the major economic and social phenomena of
our time, with a global dimension. It comprises a wide variety of products and destinations,
involving  many  different  public  and  private  stakeholders  with  very  decentralised
competencies often at regional and local levels. Tourism is now an important part of the world
economy,  and  Europe's  largest  single  industry,  with  continuing  prospects  for  increasing
employment.  Its  development  depends  particularly  on  transport  as  essential  facilitator,  and
related policies.

Since 1980 the tourism boom has seen international arrivals in European destinations double.
Europe  is  the  most-visited  tourist  region  in  the  world,  representing  today  nearly  60%  of
worldwide  international  tourism  activity.  The  signs  are  that  growth  is  set  to  continue  -  in  a
fiercely  competitive  global  market.  Numbers  in  Europe  are  expected  to  further  increase
considerably, and Europe will remain one of the principal markets for tourism to other parts
of the world.

Current European Community tourism is largely internal. Only 13 % of its recorded activity is
attributed  to  visitors  from  non-member  countries.  As  for  the  tourism  of  EU  citizens,  in  the
recent  past  three-quarters  stayed  within  the  EU.  About  four-fifths  of  European  tourism  is
leisure  tourism,  which  also  means  that  the  choice  of  destination  is  relatively  discretionary.
The rest is for other purposes, which normally do not allow a free choice of destination.

In the current EU, all this activity involves over two million tourism enterprises, employing
7.7 million people, a figure expected to rise by approximately 15 % over the next ten years. In
2001, the  tourism  industry  delivered  about  5%  of  EU  GDP,  a  figure  that  rises  to  over  12%
when  the  wider  tourism  economy  is  taken  into  account.  Nearly  99%  of  European  tourism
enterprises  are  SMEs,  however  some  large  corporate  companies  manage  a  significant
proportion of the volume of trade, particularly at an international level.

While  numbers  are  high  in  European  tourism,  and  expected  to  further  increase  to  a
considerable  extent,  there  is  a  weakness  in  the  yield  generated,  especially  recently.
Nevertheless, tourism remains one of the European economy sectors with the best prospects.

Current global circumstances

Recent security crises and health scares, which have attracted widespread media attention and
triggered  confusing  government  reaction,  have  generated  changes  in  tourism  patterns  and
demand  that  also  reflect  a  current  slowing  of  economic  growth  world-wide.  Businesses,  in
particular,  are  cutting  their  travel  costs.  Unemployment,  security  fears,  tighter  security
precautions, which make travelling less easy, and higher charges to pay for them deter travel.
There is also a reluctance to visit certain destinations for political and safety reasons.

As a result, tourists are turning to their domestic markets and short-haul destinations and they
are  reducing  holiday  spending.  For  Europe,  this  means  decreased  inbound  tourism  from
overseas  and  Europeans  are  travelling  less  to  other  parts  of  the  world  and  staying  closer  to
home. Airline capacity has been significantly reduced, so that it will be difficult to meet any
rapid increase in demand should tourism patterns revert to what they were previously.

22

Mid-term and long-term demographic and social change

Demographic change will have a major impact on tourism trends and demand. The proportion
of people over 60 in the developed countries will grow from 20% to one-third over the next
half-century. They are likely to retain their independence for longer, and health, spa and 'keep
fit' tourism is  among the segments likely to benefit from  it. They  increasingly  spend  longer
periods in tourist destinations considered to provide pleasant living conditions, in particular in
the  South  and  off-season.  More  of  them  are  changing  their  place  of  residence  more  or  less
permanently to regions which are important tourist destinations or have the potential to be so.

This  change,  and  the  growth  of  minority  groups  in  developed  societies,  will  result  in  new
product demand. Younger people, however, will continue to require ‘youth travel’ products,
and people increasingly tend to consider themselves 'young' even beyond their twenties. More
and smaller  households,  higher  disposable  incomes  and  more  flexible  working  patterns  will
lead to even  more  short-break  holidays and  a demand  for higher  quality  services.  Improved
freedom of movement and a culture of lifelong learning should encourage the willingness to
travel and seek new experiences, not just those confined to ordinary leisure tourism.

Changing political attitude and increasing economic pressures

While  levels  of  government  support  for  tourism  are  expected  to  be  reduced,  increased
awareness  of  environmental  responsibilities  could  result  in  further  regulation  to  protect  the
environment affecting in particular, adventure tourism. The prospect of higher taxes, charges
and  pricing  to  control  environmental  pressures,  of  rising  costs  related  to  strengthened
consumer  protection,  the  cost  of  improved  accessibility  for  disabled  people,  and  higher
insurance  premiums  will  all  put  increased  pressures  on  the  private  sector  to  provide  its
product at a price that the consumer expects. Competition between destinations and private-
sector  enterprises,  within  the  vertically-integrated  sector,  will  become  tighter.  They  will
respond with closer (more direct) contact with their markets and (potential) customers, within
Europe  and  internationally,  by  greater  co-operative  use  of  new  technology  for  more  cost-
effective promotion, marketing and information provision.

Changes in the transport sector

The  continued  growth  of  low-cost  airlines  using  regional  airports  will  favour  destinations
deserved  by  them,  in  particular  in  pint-to-point  service,  and  the  growth  of  the  short-break
segment.  New  fare  structures  and  the  e-market  will  change  booking  behaviour  and  favour
personally composed and 'non-standard' products, as against package tours, both in short-haul
and long haul travelling. Similar fare structures applied to cruises could lead to more flexible
products, particularly in the Mediterranean area. Both scheduled  and charter airlines, among
which limits are increasingly dwindling, will further limit their fleet to the capacity promising
maximal yield. This reduces their ability to meet rapid rises and peaks in demand. They will
still face the potential problem of fuel shortages and price rise due to political problems.

The current growth rate of individual tourism road transport is not likely to continue. It will
be more the discomfort of using the car than increasing cost which will discourage using the
car for tourism transport. For the management of the limited infrastructure carrying capacity
of important urban destinations, the success of the congestion charge in London could see this
being applied in other cities, accompanied by limitations on the movement of tourist coaches
and  an  increased  use  of  public  transport.  Government  efforts  to  reduce  congestion  and
pollution  from  road  transport  will  mean  that  rail  travel  will  increase,  if  public  financial
support is given, as the relative advantage of using private cars for tourism diminishes.

23

Annex 2

Important challenges and major private and public governance objectives for the
sustainability of European tourism

Challenges of key importance for the sustainability of tourism are:

(cid:1)  the  lack  of  skilled  manpower  for  certain  jobs,  and  the  difficult  social  and  working

conditions in the sector;

(cid:1)  the development of transport and its effect on traffic flows: as tourism necessarily depends
on  transport,  this  sector  deserves  specific  attention  also  with  regard  to  sustainability,  in
particular limiting its environmental impacts, including the issue of climate change;

(cid:1)  a  potential  impact  of  tourism  development  on  the  economic  and  social  conditions  of  the
local  population,  such  as  price  increases  and  cost  of  living,  and  the  risk  of  detaching
culture from its local context and divorcing it from its role for the local society, and losing
local  authenticity  of  socio-cultural  expressions  as  a  consequence  of  globalised  tourism
development and investment;

(cid:1)  the use of heritage resources, the need to protect the environment, and increasing exposure

to natural and man-made risks;

(cid:1)  potential  shifts  in the  choice  of  destination,  whether  or  not  in  high  season,  as  a  result  of
major  consumer  trends  and  external  factors,  including  changing  features  of  regional
climate and extreme weather events;

(cid:1)  potential  further  trend  towards  the  concentration  and  increased  vertical  integration  of

tourist services; and

(cid:1)  the adoption  and incorporation of  new  information and communication  technologies  as a

factor of competitiveness.

Major objectives regarding good private and public governance for sustainable tourism are:

(cid:1)  the  integration  of  sustainable  tourism  development  into  overall  economic,  social  and

environmental development strategies;

(cid:1)  integrated sector policies and overall coherence across all levels;

(cid:1)  multilateral environmental agreements and sustainable international trade polices;

(cid:1)  the  development  and  adoption  of  corporate  responsibility  reporting  and  sustainability

accounting in both the public and private sectors;

(cid:1)  using Local Agenda 21 specifically for tourist destinations, including at regional level;

(cid:1)  the use of value chain and destination development monitoring and indicator systems; and

(cid:1)  participation of citizens, both as consumers and in the work place.

24

Annex 3

Examples of initiatives and contributions of international and European stakeholders

The global Agenda 21 process is of fundamental importance for the tourism sector. In 1999,
the UN Commission for Sustainable Development’s (CSD) adopted a decision on Tourism and
Sustainable  Development,  which  includes  an  international  work  programme  on  sustainable
tourism  development.  The  Plan  of  Implementation  adopted  at  the  2002  World  Summit  on
Sustainable  Development  (WSSD)  adds  to  this.  Its  guidance  for  changing  unsustainable
patterns  of  consumption  and  production  (items  13  to  22)  is  highly  relevant  for  and  directly
applicable  to  the  tourism  sector.  It  also  specifically  refers  to  the  promotion  of  sustainable
tourism  development  as  an  issue  of  protecting  and  managing  the  natural  resource  base  for
economic  and  social  development;  and  to  sustainable  tourism  that  contributes  to  social,
economic and infrastructure development; and to sustainable development in the developing
parts of the world (items 41, 52 (g) and 64).

Regarding  sector-specific  initiatives  at  the  global  level,  in  1996,  the  World  Travel  and
Tourism  Council  (WTTC),  the  World  Tourism  Organisation  (WTO)  and  the  Earth  Council
drew  up  an  Agenda  21  for  the  Travel  and  Tourism  Industry.  In  1999,  the  WTO  General
Assembly  adopted  the  Global  Code  of  Ethics  for  Tourism,  which  is  a  comprehensive
document  committing  the  tourism  sector  also  to  sustainability  principles.  The  WTO  also
published  a  Guide  for  Local  Authorities  on  Developing  Sustainable  Tourism  and  a
Declaration on Tourism and Climate Change.

The United Nations Environment Programme (UNEP) / Convention on Biological Diversity
produced International  Guidelines for  Sustainable  Tourism (Guidelines for activities related
to sustainable tourism development in vulnerable terrestrial, marine and coastal and mountain
ecosystems). UNEP also co-ordinates the Tour Operators Initiative, which develops voluntary
guidelines  for  responsible  corporations  and  contributes  to  the  Global  Reporting  Initiative.
Whereas  both  initiatives  tend  to  focus  on  large  enterprises,  the  tourism  sector  requires  that
SMEs should also be fully aware of how to implement more responsible business activity.

A multi-stakeholder Tourism Industry Report issued for the 2002 WSSD lists initiatives with
which  the  tourism  industry  and  certain  of  its  major  stakeholder  groups  have  responded  to
sustainable tourism  development,  emphasising  the  crucial  importance  of  strong  partnerships
between the different stakeholders. On the same occasion, the WTO  tabled  several  tourism-
specific  contributions,  including  a  publication  on  Tourism  and  Poverty  Alleviation,  from
which it developed together with the United Nations Conference on Trade and Development
(UNCTAD)  the  special  ST-EP  (Sustainable  Tourism  -  Eliminating  Poverty)  initiative.
Furthermore,  WTTC  issued  a  publication  on  Corporate  Social  Leadership  for  the  Travel  &
Tourism Industry as a business response to the challenge of sustainable development.

Relevant work was also undertaken by international Non-Governmental Organisations in the
spheres of  culture  and  nature. The International  Cultural Tourism  Charter presented  by  the
International Council on Monuments and Sites gives principles and guidelines for managing
tourism  at  places  of  cultural  and  heritage  significance.  The  International  Friends  of  Nature
issued Ten Guidelines for a Sustainable Development of Tourism.

Several  other  documents,  measures  and  exchanges  of  best  practice  particularly  focus  on
Europe,  such  as  a  Charter  for  Environmentally  Sustainable  Tourism  that  was  recently
presented  by  the  Network  of  European  Private  Entrepreneurs  in  the  Tourism  Sector  (NET),
and  the  European  Charter  for  Sustainable  Tourism  in  Protected  Areas.  The  Council  of

25

Europe  European  Landscape  Convention  offers  clarification  on  the  approach  to  ensure  the
preservation  of  the  regional  diversity  of  Europe  as  one  of  the  cornerstones  for  sustainable
European tourism. Regarding a large geographical area of particular importance for tourism in
Europe,  the  Alpine  Convention  comprises  a  Protocol  on  Tourism  and  Recreation  that
addresses particularly sustainability issues.

For  the  local  level,  the  UN  Local  Agenda  21  process  is  of  the  utmost  importance.  It  is
regarded as a key tool for the management of a sustainable tourism process, offering guidance
for local territorial management, i.e. in tourist destinations, forging the use of monitoring and
indicator  systems  to  ensure  the  quality  of  sustainable  development.  A  number  of
municipalities  are  involved  in  its  implementation,  which  is  particularly  promoted  by  the
International  Council  for  Local  Environmental  Initiatives  (ICLEI),  an 
international
association  of  local  governments  implementing  sustainable  development,  and  its  European
Secretariat.  Recently  (2003),  UNEP  published  case  studies  and  first  lessons  regarding
Tourism and Local Agenda 21 - The Role of Local Authorities in Sustainable Tourism.

A number of initiatives at various levels are  focusing  on  the  issue of  indicators. The World
Tourism Organisation has worked on the  methodology for  the identification  and application
of  sustainable  tourism  indicators.  In  1997,  it  published  a  practical  guide  (What  Tourism
Managers Need to Know) to their development and use. It recently set up a new task force,
with the participation of the European Environmental Agency, to produce a set of guidelines
for  the  definition  and  application  of  sustainability  indicators  in  tourism.  The  European
Environmental  Agency  also  co-operates  in  the  development  of  institutional,  environmental,
socio-cultural and economic performance indicators, the “European Indicators for Sustainable
Tourism Development in Destinations”, which is undertaken in the framework of the mainly
civil society led  EU project VISIT  (Voluntary  Initiatives  for Sustainability  In  Tourism) that
the European Commission supports under the Life financial instrument  for  the  environment.
In 2001, the German Federal Environmental Agency issued a publication on Indicators for the
development of sustainable tourism in the Baltic Sea Region.

At  all  levels,  a  wide  variety  of  relevant  initiatives  address  the  development  of  information
tools to encourage sustainable production and consumption patterns in the tourism sector. A
recent  (2002)  WTO  publication  on  Voluntary  Initiatives  for  Sustainable  Tourism  shows  the
extent to which European products  and  services have taken a  leading role in  voluntary  eco-
labelling initiatives. With about 40 regional, national and international eco-labels for tourism
in  Europe,  these  schemes  are  so  plentiful  that  it  is  questionable  whether  tourists  can  obtain
reliable  guidance  on sustainable  consumption.  The  above-mentioned  VISIT  project  has  also
started developing a standard that allows the identification of the European tourism eco-labels
with a high environmental quality.

Alongside these initiatives, the ISO 9000 group of standards on quality management systems
and ISO 14000 group on environmental management can be relevant to the tourism sector. A
number of tourism enterprises are implementing them.

26

Annex 4

Community policies and initiatives with a favourable effect on the sustainability of
European tourism

–  Governance, better regulation and policy integration

European Governance and Better Regulation provide approaches and instruments that support
moves  to  make  tourism  sustainable.  Transversal  integration  of  sector  policy-making  and
implementation ensures an adequate account of sustainable concerns in a cross-sector industry
like tourism. Impact assessment crucially contributes to integration and improves the quality
and coherence of policy design. Beyond the planned pilot applications, tripartite agreements
as  instruments  of  voluntary  undertakings  that  do  not  involve  binding  legal  commitments
might help also to promote the sustainability of tourism.

Article  6  of  the  Treaty  establishing  the  European  Community  requires  the  integration  of
environmental protection. The Council has adopted resolutions, conclusions or strategies for
achieving environmental integration and sustainable development within specific policy areas,
a number of which are relevant to sustainable tourism development.

The  Community  Integrated  Coastal  Zone  Management  (ICZM)  strategy  and  the  related
Recommendation,  which  outline  the  way  to  promote  ICZM,  are  particularly  relevant  for
tourism activities and tourist destinations. Member States have been asked to develop national
ICZM strategies by spring 2006. Commission publications identify and promote best practice
in the field of Integrated Quality Management of Tourist Destinations.

–  Sustainable entrepreneurship, business practice and employment

The  EU  enterprise  policy  strategy  and  related  measures,  such  as  the  simplification  of  the
business  environment,  the  European  Charter  for  Small  Enterprises  and  the  European
Observatory for SMEs, have the potential to contribute to the sustainability of the European
tourism sector.  EU  action  to  promote  entrepreneurship  and  SMEs,  such  as  business  support
measures  and  networks,  access  to  finance  and  measures  in  favour  of  small  businesses  and
specific target groups, can help foster sustainable tourism enterprises.

The  sustainability  of  tourism  can  particularly  benefit  from  a  joint  stakeholder  effort  to
promote  and  develop  Corporate  Social  Responsibility 
(CSR).  The  Commission
Communication on CSR provides the reference for its further development, including in the
tourism sector. An important element is the invitation for companies with at least 500 staff to
publish  a  “triple  bottom  line”  in  their  annual  reports  that  measures  performance  against
economic, environmental and social criteria, and the recognition, measurement and disclosure
of environmental issues in the annual accounts and annual reports of companies.

into  Community  policies.  Merger  control  sees 

European  competition  policy  ensures  an  economically  sustainable  business  world  and  an
adequate  level  playing  field  for  sustainable  business.  It  backs  integrating  environmental
that  continued
considerations 
concentration  at  the  level  of  the  intermediaries,  combined  with  vertical  integration  and
enhanced buying power of travel organisers, does not lead to deterioration in competition in
the market, with adverse effects on local suppliers, small operators and the final consumers.
Community guidelines on State aid for environmental protection explore new forms of aid for
environmental  purposes  as  a  means  of  promoting  sustainable  development  in  application  of
the ‘polluter pays’ principle, while avoiding any conflict with that of internalisation of costs.

to 

it 

27

Sustainable tourism can benefit from the approaches and instruments outlined in detail in the
Commission  Communication  on  integrating  environmental  issues  with  economic  policy.
Economic instruments, in particular market instruments for achieving functioning markets for
environmental goods and services, offer a good pathway towards integration of environmental
and economic policies in this sector. Negotiated agreements, perhaps for a geographical area
or  sub-sector,  leave  industry  with  great  flexibility  in  reaching  agreed  targets,  provided  that
most  of  the  firms  concerned  are  represented  and  can  be  expected  to  join  the  agreement.
Environmental  as  well  as  other  taxes  can  play  a  significant  role  for  cost  internalisation.
Tourism  environmental  taxes  can  be  an  important  instrument  to  make  polluters  pay.  Where
necessary, levying charges or offering payments that put a price on environmental resources
corresponds well to the diversity of the tourism sector.

The  main  lines  of  the  European  Employment  Strategy  (EES),  the  annual  EU  guidelines  for
employment  in  the  Member  States,  and  the  related  recommendations  addressed  to  each
Member State can be reaffirmed for the tourism sector. Developing entrepreneurship and job
creation,  improving  employability,  encouraging  adaptability  of  businesses  and  their  labour
force,  and  strengthening  equal  opportunities  policies  for  women  and  men  are  fundamental
areas that could accordingly be explored in regard to tourism potential for job creation.

A socially sustainable tourism sector and its attractiveness for a skilled work force can benefit
from the European Community efforts and work on issues in the field of quality working and
employment  conditions,  such  as  social  dialogue  and  consultation,  social  co-operation,
collective  agreements  and  bargaining,  social  protection  and  mutual  information  on  it,
disability,  ageing  policy,  co-ordination  of  social  security  schemes  and  social  inclusion.  The
Commission efforts with regard to making a European area of lifelong learning a reality are
also beneficial for the tourism sector, in particular with a view to Learning Areas, so that the
tourism industry has all the skills necessary for innovation available to it.

–  Sustainable transport and energy

The White Paper on "European transport policy for 2010: time to decide” and its Action Plan
are of prime importance for the sustainability of European tourism.

The  White  Paper  outlines  how  to  achieve  tourist  transport  that  is  more  efficient,  sustainable  and  of  higher
quality. The proposed strategy and measures are designed to gradually break the link between constant transport
growth  and  economic  growth  in  order  to  reduce  congestion  and  the  pressure  on  the  environment  while
maintaining the EU’s economic competitiveness and developing a quality transport policy for Europe’s citizens.
The  proposed  measures  concerning  transport  safety,  low  congestion,  sustainable  mobility,  passengers’  rights,
better  quality  of  transport  services,  and  sustainable  infrastructure  meet  the  concerns  of  tourists  and  local
population and significantly affect the tourism product and life in destinations.

The White Paper stresses the importance of a balanced growth between the different modes of transport thanks to
policy measures to achieve a regulated market opening and to internalise the external costs of transport, the latter
in addition to targeted investments in the networks which ensure a fair competition between the different modes
of transport. Eliminating technical and institutional transport barriers between the Member States and creating a
true common transport market will favour sustainable tourism transport. The Trans-European transport network
(TEN-T)  infrastructure  for  the  different  modes  of  transport  and  its  traffic  management  systems  also  facilitate
tourism and will do so in accordance with sustainability requirements.

Community  achievements  and  measures  in  the  field  of  energy  favour  sustainable  tourism
development. The White Paper Energy for the future - renewable sources of energy sets out
the  objectives  and  the  related  timetable  of  actions  with  regard  to  types  of  energy  that  are
highly  important  for  the  tourism  sector,  in  the  form  of  an  Action  Plan.  Key  actions  in  the
White Paper's ‘Campaign for take-off’ explicitly refer to tourism-related applications.

28

–  Wise use, management, promotion and enhancement of natural resources and of heritage:

protected areas and natural and cultural heritage

To respect bio-diversity, cultural values and cultural heritage the Commission encourages and
promotes  the  assessment  of  the  tourism  carrying  capacity  of  ecosystems,  habitats  and  sites,
the exchange of best practice among public and private tourism interests and the development
of international guidelines for sustainable tourism. It has published guidance on the issue of
developing  sustainable  tourism  within  protected  areas  and  on  the  basis  of  heritage.  The
objectives  and  measures  set  out  in  the  European  Community  Bio-diversity  Strategy  are
directly  relevant  for  sustainable  tourism,  including  required  special  conservation  and
protection measures and particular  attention  to  the  tourism  impact  on  Europe's  Nature  2000
sites.

Many  Community-funded  measures  and  projects  provide  good  practice  on  how  sustainable
tourism  can  create  opportunities  to  make  good  use  of  heritage  and  to  enhance  the  great
potential  of  cultural  heritage-based  tourism  for  sustainable  economic  development  and  job
creation.  The  Culture  2000  programme,  which  aims  at  promoting  a  common  cultural  area
characterised  by  both  cultural  diversity  and  a  common  cultural  heritage,  and  several  other
European programmes with a cultural dimension, can help explore these opportunities.

–  Environment policy

The Community environment policy has a major relevance for the sustainability of European
tourism. Besides the measures, instruments and tools mentioned with regard to the wise use
and  management  of  biological  diversity  and  natural  heritage  (see  above),  and  to
environmental  information,  management  and  assessment  (see  below),  issues  such  as  water,
waste water and waste management directly affect the tourism sector.

The  1976  Bathing  Water  Directive  has  set  binding  standards  for  bathing  waters  throughout
the  European  Union,  which  are  currently  subject  to  a  revision  under  a  new  directive.  The
annual Bathing Water Report and Tourist Atlas show the quality of bathing waters. Safe water
to swim or play in is an important factor in tourists' choice of a destination, for which clean
water is an important argument to attract visitors.

Regarding waste water and waste, the Community measures for prevention and those dealing
with treatment, reuse, recycling, disposal or incineration are of direct interest and crucial for
the  tourism  value  chain  and  for  sustainable  tourist  destinations.  Preventing  and  combating
local  environmental  noise  is  also  an  issue  of  major  importance  for  the  environmentally-
sustainable management of tourist destinations.

–  Financial  support  for  sustainable  tourism  development:  the  funds  in  favour  of  economic

and social cohesion

The Structural Funds and their Community initiatives, in particular Interreg and LEADER+,
the Phare programme, and Community support for pre-accession measures for agriculture and
rural  development  (SAPARD),  all  provide  good  possibilities  for  supporting  tourism-related
measures. The Commission publication on “Making the best use of the Structural Funds in the
sector of Commerce and Tourism” further promotes this role. Renovation and development of
villages and protection and conservation of the rural heritage, and encouragement for tourism
activities,  are  measures  eligible  under  Article  33  of  the  current  Council  Regulation  on
EAGGF support for rural development, outside objective 1 regions from EAGGF Guarantee.

29

The Cohesion Fund and the Instrument for Structural Policies for Pre-accession, respectively
finance  major  environment  and  transport  infrastructure  projects  that  contribute  to  achieving
the  objectives  of  the  Community's  environment  policy  and  the  Trans-European  Transport
Network and can be of large-scale importance for further tourism development in Europe.

–  Implementing new technologies

The Commission has highlighted the steps to be taken to ensure that European enterprises can
take maximum benefit from e-economy, including those in the tourism sector, for which the
potential impact of ICTs is high. The Commission eEurope 2005 Action Plan: An information
society for all invites the private sector to work with the Commission and Member States to
achieve  the  eEurope  objectives.  Explicitly  referring  to  tourism,  the  plan  announces  that  the
Commission, in co-operation with Member States, the private sector and regional authorities,
will define e-services to promote Europe and to offer user-friendly public information.

Furthermore, the Priority thematic area of research “Information Society technologies” under
the  sixth  framework  programme  of  the  European  Community  for  research,  technological
development  and  demonstration  activities  contributing  to  the  creation  of  the  European
Research  Area  and  to  innovation  (2002-2006)  provides  good  opportunities  for  supporting
tourism-related projects.

–  High-quality information, management tools, observation and measurement

Better-quality and easily-accessible information on the environment and on practical matters
helps  shape  opinions  and  thus  individual  tourists'  decisions  that  support  sustainability.  The
extension of the Community eco-label scheme to services started with the sub-sector of tourist
accommodation,  the  first  service  sector  for  which  ecological  criteria  were  developed.
Likewise, a wide uptake of the Community Eco-Management and Audit Scheme (EMAS) by
the tourism sector to evaluate, report and improve environmental performance, together with
rigorous  and  independently-verified  environmental  or  sustainable  development  performance
reports, is to be favoured.

Community legislation requires an Environmental Impact Assessment for certain tourism and
leisure  installation  projects  and  for  plans  and  programmes  which  set  up  the  framework  for
development  consent.  Integrated  Product  Policy  contributes  to  the  minimising  of  the
environmental impact of products through all phases of their life cycle. Tourism stakeholders
can  benefit  from  information  on  industry  and  product  policy  areas  that  are  already  being
developed and tested, such as eco-industries, and from the possibilities offered by Community
law  to  public  purchasers  who  wish  to  integrate  environmental  considerations  into  public
procurement procedures.

An important tool to ensure sustainability during the whole life cycle  is the use of an 'Early
warning system for the identification of declining tourist destinations and of preventive best
practices', on  which  the  Commission has issued a specific publication.  Current Commission
work  on  harmonised  criteria  for  good  accessibility  of  tourist  sites  and  infrastructures  for
disabled  people  is  expected  to  result  in  information  that  will  help  observing  and  measuring
this aspect of the sustainability of European tourism.

The logical point to look for in reliable tourism-related indicators is the identification of key
impact areas of tourism that can be measured directly as outputs from the conduct of tourism
businesses and visitors at destinations. Eurostat is launching  preparatory  work  to  draw  up  a
methodological manual on the measurement of sustainable development in tourism.

30