Communication from the Commission - A renewed EU Tourism Policy - Towards a stronger partnership for European Tourism
Date: 2006-03-17
Institutions: European Commission
Subjects: European Union, cooperation policy, economic development, job creation, social development, sustainable development, tourism, tourism policy

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 17.3.2006 
COM(2006) 134 final 

COMMUNICATION FROM THE COMMISSION 

A renewed EU Tourism Policy: Towards a stronger partnership for European Tourism 

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1. 

TOURISM AND THE RENEWED LISBON STRATEGY 

1.1. 

The challenge of growth and jobs 

On February 2005, the Commission proposed a new start for the Lisbon Strategy focusing the 
European  Union’s  efforts  on  two  principal  tasks  –  delivering  stronger,  lasting  growth  and 
more and better jobs1. 

Since 1997, the potential of tourism to generate employment and growth has been recognised 
at EU level on several occasions.2 Globalisation, demographic changes and  the evolution in 
transport are decisive factors in driving the rapid growth of this industry. With its variety of 
attractions and quality of its tourism services Europe is the world leading tourist destination. 
Tourism  is  therefore  an  activity  which  can  play  an  important  role  in  the  attainment  of  the 
Growth and Jobs Strategy goals. 

Tourism is a cross-cutting sector, involving a big diversity of services and professions, linked 
to many other economic activities. It impacts on sectors such as transport, construction, retail 
and  on  the  numerous  sectors  that  produce  holiday  products  or  provide  leisure  and  business 
travel-related services. Although some big international companies contribute to this sector, it 
is mainly dominated by SMEs. In its most narrow definition, the European tourism industry 
creates more than 4% of the Community’s GDP, with about 2 million enterprises employing 
about 4% of the total labour force (representing approximately 8 million jobs). When the links 
to other sectors are taken into account, the contribution of tourism to GDP is estimated to be 
around  11%  and  it  provides  employment  to  more  than  12%  of  the  labour  force  (24 million 
jobs). 

The  job  creation  rate  in  tourism  is  above  average  compared  to  the  European  economy  as  a 
whole.  In  the  last  decade,  the  annual  growth  rate  of  people  employed  in  the  HORECA 
(Hotels, Restaurants, and Cafes) sector has been almost always above the growth rate of total 
employment3. An important reason for the contribution of the tourism industry to job creation, 
in particular with regard to the employment of women, young and less skilled persons, is the 
high degree of part-time employment and flexible working conditions. The flexibility of this 
workforce  should  be  matched  by  appropriate  measures  for  job  security  and  skills 
development. 

Tourism plays an important role in the development of the vast majority of European regions. 
Infrastructure  created  for  tourism  purposes  contributes  to  local  development,  and  jobs  are 
created  or  maintained  even  in  areas  in  industrial  or  rural  decline,  or  undergoing  urban 
regeneration. The need to improve the attractiveness of the regions acts as an incentive to an 
increasing  number  of  destinations  and  stakeholders  to  turn  towards  more  sustainable  and 
environmentally friendly practices and policies. Sustainable tourism plays a major role in the 
preservation  and  enhancement  of  the  cultural  and  natural  heritage  in  an  ever  expanding 
number  of  areas,  ranging  from  arts  to  local  gastronomy,  crafts  or  the  preservation  of 
biodiversity4. This in turn impacts in a positive way on employment and growth creation. The 

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COM(2005) 24 of 2.2.2005 
See: http://europa.eu.int/comm/enterprise/services/tourismeu.htm#factsandfigures 
Eurostat- Statistics in focus 32/2005 
The European Sustainable Development Strategy 2005 – 2010. See: 
http://europa.eu.int/comm/sustainable/sds2005-2010/index_en.htm 

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Commission and the  tourism  stakeholders have recognised this  and are actively working on 
the elaboration of a European Agenda 21 for Tourism. 

Thanks  to  tourism,  those  visiting  European  destinations  are  brought  into  contact  with  our 
values  and  our  heritage.  Tourism  contributes  to  a  better  understanding  amongst  people  and 
helps in the process of shaping the European identity. It also promotes intercultural dialogue, 
through contact between various social, economic and cultural groups. 

The recent enlargement of the European Union has increased the diversity of European tourist 
destinations  and  products,  opening  up  numerous  natural  and  cultural  attractions  often 
unknown to many European citizens. The development of tourism in the new Member States 
and  the  candidate  countries  will  contribute  to  the  generation  of  growth  and  jobs  by  the 
European tourism industry. 

Tourism is therefore an important sector for the renewed Lisbon strategy; its implementation 
does not solely concern public administrations. Responding to the Lisbon challenges will need 
to involve all stakeholders at EU, national, regional and local level in a renewed partnership 
for growth and jobs. 

1.2. 

Challenges facing tourism 

Changes  in  the  demographic  structure  of  Europe  will  have  a  major  impact  on  tourism.  The 
number  of  older  people  (65  and  upwards)  will  continue  to  grow,  as  the  overall  population 
enjoys  better  health,  a  higher  life  expectancy  and  greater  spending  power  than  previous 
generations. Therefore the number of people over fifty who are travelling much more should 
increase. 

Alongside  this  significant  growth  in  tourism,  there  will  be  a  change  in  public  demand  with 
regard to types of tourism. Health tourism and tourism relating to cultural and natural heritage 
are expected to undergo the most significant growth. 

Although  Europe  is  the  most  visited  region  of  the  world,  international  tourist  arrivals  are 
growing at a lower rate than the world average. New competing destinations are emerging and 
developing  further,  with  innovative  products  and  services  which  further  increase  the 
competition the EU is facing at a global level. 

It is also widely recognised that tourism can become the victim of its own success if it does 
not develop in a sustainable way. Biodiversity, ecosystem function, natural resources and non-
renewable cultural heritage or even the functioning of urban areas may be threatened by the 
uncontrolled development of tourism. Economic, social and environmental sustainability are 
key  factors  for  the  competitiveness  of  destinations  and  the  welfare  of  their  populations,  as 
well  as  for  the  creation  of  employment  and  for  the  preservation  and  enhancement  of  the 
natural and cultural attractions. 

In order to meet challenges such as changing demography, external competition, the need for 
sustainability and the demand for specific forms of tourism, Europe must focus its efforts on 
improving  its  competitiveness.  A  more  competitive  tourism  industry  and  sustainable 
destinations would also contribute further to the success of the renewed Lisbon strategy, the 
satisfaction  of  tourists  and  to  securing  the  position  of  Europe  as  the  No1  world  tourist 
destination. 

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1.3. 

Dialogue and partnership amongst tourism stakeholders 

Tourism is an activity involving a wide variety of stakeholders and policy measures at various 
levels. These influence and are influenced, both directly and indirectly, by the development of 
tourism.  Dialogue  amongst  sectoral  social  partners,  stakeholders  and  with  the  public 
authorities is necessary in order to promote the harmonious and sustainable  development of 
tourism. 

Partnerships  amongst  all  involved  stakeholders  are  also  necessary  at  every  level  of  the 
decision-making  process  related  to  tourism.  Partnerships  must  be  a  central  component  of 
action at all levels (European, national, regional and local; public and private). 

2. 

A RENEWED EUROPEAN TOURISM POLICY 

The challenges European tourism is faced with require a cohesive policy response at EU level. 
This  policy  must  be  focused  on  clear  and  realistic  goals,  commonly  shared  by  decision- 
makers,  employers  and  employees,  as  well  as  by  local  populations.  It  should  make  the  best 
use of available resources and take advantage of all possible synergies. It must build on the 
whole range of actions already carried out and must clearly offer added value to the national 
and  regional  policies  and  measures.  Therefore  any  European  tourism  policy  should  be 
complementary to policies carried out in Member States. 

The  Commission  intends  to  put  in  place  a  renewed  European  tourism  policy,  based  on  the 
experiences  gained  so  far  and  responding  to  the  challenges  of  today.  The  main  aim  of  this 
policy  will  be  to  improve  the  competitiveness  of  the  European  tourism  industry  and 
create  more  and  better  jobs  through  the  sustainable  growth  of  tourism  in  Europe  and 
globally. 

In implementing this policy, the Commission will develop a close partnership with Member 
States’ authorities and the stakeholders in the tourism industry. 

Following  the  experience  acquired  so  far  and  exchanges  of  views  with  a  broad  range  of 
stakeholders,  the  Commission  considers  that  the  most  appropriate  instruments  for  the 
implementation  of  this  policy  are  co-ordination  within  the  Commission  and  within  national 
authorities, co-operation between the different stakeholders, and the establishment of specific 
supporting actions. 

The main areas on which the policy will focus are: 

2.1.  Mainstreaming measures affecting tourism 

2.1.1.  Better regulation 

Regulation,  in  many  policy  areas,  can  be  of  particular  importance  to  the  competitiveness  of 
the  tourism  industry  and  tourist  destinations.  Given  the  large  number  of  policies  affecting 
tourism, it is necessary to actively promote better regulation, both at national and European 
level. 

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In its Communication on “Better Regulation for Growth and Jobs”5, the Commission has set 
out  a  revised  approach  to  further  promote  better  regulation  with  a  view  to  improving 
European competitiveness. It focuses on: 

(1)  Improving  and  extending  the  use  of  impact  assessment  (IA)  for  new  proposals  This 
integrated  approach  ensures  that  tourism  will  be  fully  taken  into  account  in  all  IA  work  for 
proposals likely to affect the sector; 

(2) Screening pending legislative proposals and; 

(3)  Simplifying  existing  European  legislation6.  This  will  include  legislation  such  as  the 
Package Travel Directive and the Timeshare Directive; the latter is regarded as a priority. 

The  Commission  will  continue  to  consult  regularly  with  stakeholders  on  how  the 
simplification  programme  should  be  further  developed  over  the  coming  years.  Tourism 
stakeholders  are  invited  to  participate  actively  in  this  effort  to  improve  the  regulatory 
environment.  Such  exercises  should  also  be  extended  at  national  level  to  avoid  cumulative 
administrative burden for the tourism industry. 

2.1.2.  Policy-coordination 

Most  Community  actions  aiming  to  support  the  competitiveness  of  European  tourism  are 
carried  out  through  the  Enterprise  policy  instruments.  Nevertheless  many  other  European 
policies impact directly or indirectly on tourism7. 

Each  year,  the  initiatives  that  may  affect  tourism,  included  in  the  Commission  Work 
Programme,  will  be  identified  in  order  to  make  sure  that  their  impact  on  the  sector’s 
competitiveness will be taken into account at an early stage. This is in line with the European 
Parliament’s demand in the 2005 Report on new prospects and new challenges for sustainable 
European tourism.8 

The  Commission  will  continue  with  its  efforts  to  keep  the  members  of  the  Advisory 
Committee on Tourism informed, in an efficient, timely and transparent way on the tourism-
related initiatives included in its Work Programme. This will allow the public administrations 
to also keep the various stakeholders, at national, regional and local level, regularly informed 
of the Commission initiatives. 

The  Commission  will  continue  consulting  with  and  informing  the  tourism  stakeholders  on 
issues  and  initiatives  affecting  tourism.  This  is  an  interactive  process  which  has  produced 
positive results overall and must be strengthened and continuously improved. In this context 
the currently prepared Green Paper on Maritime Affairs, covering coastal and marine tourism, 
will constitute another opportunity for numerous stakeholders to provide input to EU policy-
making. 

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COM (2005) 97 of 16.3.2005 
An example of already adopted legislation is Directive 2005/36/EC which consolidates and modernises 
the rules currently regulating the recognition of professional qualifications facilitating the provision of 
services by professionals of the tourism sector 
See: 
initiatives such as the proposal for a Directive on Services in the Internal Market 
PE 353.597/v03-00 

http://europa.eu.int/comm/enterprise/services/tourism/policy-areas/measures.htm 

other 

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2.1.3. 

Improved use of available European financial instruments 

Tourism  has  benefited  greatly  from  the  financial  support  offered  by  the  various  European 
financial  instruments.  In  the  period  2007-2013,  the  Structural  Funds  and  other  EU 
Programmes,  will  financially  support  the  development  of  tourism  businesses,  services  and 
infrastructure.  

The Commission has foreseen the possibility of funding sustainable tourism-related projects 
through  the  European  Regional  Development  Fund  (ERDF)9,  in  support  of  socio-economic 
development.  Under  the  "Convergence"  the  "Competitiveness  and  employment"  and  the 
"European  territorial  cooperation  "objectives,  ERDF  shall  support  more  sustainable  patterns 
of tourism to enhance cultural and natural heritage, develop accessibility and mobility related 
infrastructure and to promote ICT, innovative SMEs, business networks and clusters, higher 
value  added  services,  joint  cross-border  tourism  strategies  and  inter-regional  exchange  of 
experience.  

Environment  and  transport  infrastructures,  both  of  utmost  importance  for  tourism,  are  also 
financed by the Cohesion Fund. 

Tourism development, given its employment creation potential, is an important domain of the 
European  Social  Fund's  (ESF)  intervention.  Amongst  others,  the  ESF  co-finances  projects 
targeting  educational  programmes  and  training  in  order  to  enhance  productivity  and  the 
quality of employment and services in the tourism sector. 

The  ESF  provides  also  targeted  training  combined  with  small  start-up  premiums  to  tourism 
micro-enterprises.  These  actions  tend  to  be  very  effective  in  creating  economic  activity  and 
employment. It also co-finances actions that support professional mobility. 

Following up on a European  Parliament initiative for the introduction of a  specific  measure 
under  the  future  ‘Leonardo  da  Vinci’  programme  (part  of  the  new  Integrated  Lifelong 
Learning  Programme)10  in  the  form  of  a  mobility  programme  for  apprentices  and  young 
persons in initial vocational training the Commission launched, in 2005, a preparatory series 
of studies which will serve to identify the main features of possible European apprenticeship-
training models. These studies will offer greater insight into the possible obstacles to mobility 
in vocational training. Tourism has been identified as a possible pilot sector. This should lead 
to  concrete  proposals  for  solutions  which  will  form  the  basis  of  a  programme  of  specific 
actions to be implemented in phase two of this pilot project.  

Rural  areas  have  become  more  attractive  and  offer  many  environmental  amenities,  thus 
making,  the  last  decades,  rural  tourism  an  important  source  of  diversification  of  the  rural 
economy, well integrated with farming activities. This may become an important opportunity 
for  new  Member  States  and  candidate  countries.  The  new  European  Agricultural  Fund  for 
Rural Development will provide support for: 

•  Improving the quality of agricultural production and products; 

•  Improving the environment and the countryside; 

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See: http://europa.eu.int/comm/regional_policy/index_en.htm 
COM (2004) 474 of 14.7.2004 

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•  Encouraging tourist activities as part of the diversification of the rural economy objective. 

•  Studies and investments associated with the maintenance, restoration and upgrading of the 

cultural heritage. 

The  new  proposed  European  Fisheries  Fund  (EFF)  introduces  as  a  new  priority  theme  “the 
sustainable development of fisheries areas”. It aims to alleviate the socio-economic effects of 
the  restructuring  of  the  fisheries  sector  and  to  regenerate  fisheries-dependent  areas  through 
diversification  and  the  creation  of  employment  alternatives.  One  of  the  areas  to  which 
fishermen  may  redirect  their  activities  is  eco-tourism.  Small-scale  fisheries  and  tourism 
infrastructure  will  also  be  supported  through  the  EFF.  The  Fund  also  supports  schemes  for 
retraining in occupations, besides sea fishing, which may relate to tourism. 

The  proposed  ‘Competitiveness  and  Innovation  Framework  Programme’11  will  support  the 
competitiveness of EU enterprises and especially SMEs. 

Research  which  will  be  supported  under  the  proposed  7th  EC  Framework  Programme  for 
Research,  Technological  Development  and  Demonstration  activities12  may  result  in  benefits 
for  the  tourism  sector  as  for  example,  research  on  information  and  communication 
technologies,  satellite  applications,  cultural  heritage  and  land  use.  This  builds  on  research 
supported by  previous  Framework Programmes which  merits further dissemination amongst 
policy makers and stakeholders. 

Member  states,  regions,  local  authorities  and  the  industry  at  all  levels  should  collaborate  in 
order  to  ensure  that  tourism  profits  fully  from  the  European  financial  instruments  and  it  is 
taken into account in the planning of all related projects. 

2.2. 

Promoting tourism sustainability 

2.2.1.  A European Agenda 21 for tourism 

Making  growth  and  jobs  the  immediate  target  goes  hand  in  hand  with  promoting  social  or 
environmental  objectives.  The  renewed  Lisbon  Strategy  is  an  essential  component  of  the 
overarching objective of sustainable development set out in the Treaty: improving welfare and 
living conditions in a sustainable way for present and future generations. 

Already  in  the  Communication  ‘Basic  orientations  for  the  sustainability  of  European 
tourism’13 the Commission pointed out that ensuring the economic, social and environmental 
sustainability  of  European  tourism  is  crucial,  both  as  a  contribution  to  sustainable 
development 
the  viability,  continued  growth, 
competitiveness  and  commercial  success  of  this  economically-important  sector.  As  a  result 
the Commission launched the preparation of a European Agenda 21 for tourism. 

in  Europe  and  world-wide  and  for 

The  Commission  set  up  in  2004  the  Tourism  Sustainability  Group  (TSG)  in  order  to 
encourage  stakeholder  synergies  and  to  provide  input  into  the  Agenda  21  process  for  the 
sustainability of European tourism. The TSG is composed of experts coming from a balanced 
representation  of  industry  associations,  destinations  representatives  and  trade  unions/civil 

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COM (2005) 121 final of 6.4.2005 
See: http://europa.eu.int/comm/research/future/index_en.cfm 
COM(2003) 716 final of 21.11.2003 

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society.  Member  States’  administrations  and  international  organisations  such  as  the  World 
Tourism Organisation are also represented. The TSG pays particular attention to environment-
related issues. 

The  TSG  will  finalise  its  work  and  table  a  report  in  2006.  The  Commission  will  start 
organising the follow-up steps on the basis of this and expects to build on the report in order 
to present, by 2007, a proposal for a European Agenda 21 for tourism. 

2.2.2. 

Specific supporting actions for the sustainability of European tourism 

The  elaboration  and  implementation  of  a  European  Agenda  21  for  tourism  is  a  long-term 
process. Further to this work the Commission plans specific actions promoting the economic 
and social sustainability of the European tourism such as: 

•  To identify national and international measures to support tourism-related SMEs and set up 

a good practice exchange process. 

•  To  evaluate  the  economic  impact  of  better  accessibility  in  the  tourism  sector  on 
macroeconomic growth and employment, business opportunities for SMEs, the quality of 
services and competitiveness. 

•  Facilitating the exchange of ‘tourism for all’ good practice. 

•  Publishing a handbook on ‘How to set up Learning Areas in the Tourism sector’ in order to 
support  the  upgrading  of  skills  in  the  tourism  sector  with  the  involvement  of  all 
stakeholders. 

•  Studying employment trends in coastal and sea-related tourism sectors. 

•  Developing  official  statistics  and  commissioning  e-Business  W@tch  studies  to  assess 

future implications and impact of e-business on the tourism industry. 

•  Continuation of its initiatives and collaboration with the Member States, the industry and 
the  World  Tourism  Organisation  in  order  to  combat  the  sexual  exploitation  of  children, 
especially when such crimes are committed by tourists. 

2.3. 

Enhancing the understanding and the visibility of tourism 

2.3.1. 

Improving the understanding of European tourism 

Decision-makers at public and private level need harmonised, more detailed statistics, made 
available in a timely manner. The Council Directive 95/57/EC14 on the collection of statistical 
information in the field of tourism will be updated in order to take the evolution of tourism in 
Europe  and  the  needs  of  its  users  into  account.  It  will  be  substantially  improved  in  matters 
such as timeliness and punctuality, relevance, and comparability.  

A  better  harmonisation  and  implementation  of  the  Tourism  Satellite  Accounts  (TSAs)  will 
also  be  promoted  in  partnership  with  the  Member  States,  National  Statistical  Institutes  and 
other  stakeholders,  since  they  can  contribute  to  a  better  understanding  of  the  true  size  and 

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Official Journal L 291, 06/12/1995 P. 0032 - 0039 

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value  of  the  tourism  industry.  This  work  will  greatly  benefit  from  the  experiences  gathered 
from the pilot projects supported financially by the Commission (2002-2006). 

Eurostat  will  continue  to  produce  special  editions  and  publications,  useful  to  industry  and 
public administrations, such as the ‘Panorama on tourism’, the ‘Pocketbook on tourism’ and 
the various ‘Statistics in Focus’ on winter and summer trends, ICT in tourism, how Europeans 
go on holiday, employment in tourism, etc. 

2.3.2. 

Supporting the promotion of European destinations 

The  globalisation  of  the  markets,  has  created  competition  pressures  but  has  also  opened  up 
opportunities, with tourists from new markets (such as China, Russia and India) able to afford 
high  value  vacations.  Attracting  more  tourists  to  Europe  will  favour  the  creation  of  growth 
and jobs. 

To  contribute  to  the  marketing  of  Europe  as  a  set  of  attractive  tourist  destinations  the 
Commission financed the creation of the European Tourist Destinations Portal. It will include 
practical  information  about  Europe,  such  as  travel  planning  (transportation,  weather  and 
calendar) or recommendations on “where to go” and “what to do” and links towards national 
web sites. The operational phase will start on March 2006 and the Portal will be managed by 
the European Travel Commission.  

European cities and regions are hosting numerous cultural (such as the European Capital of 
Culture15or  festivals)  and  sporting  activities,  i.e.  events  that  can  play  an  important  role  in 
marketing the image of the host destination, before, during, and after the event itself. Tourism 
related  SMEs,  in  particular,  can  benefit  greatly  from  such  events,  if  they  are  adequately 
involved in all phases of their organisation. 

The  Commission  will  analyse  the  impact  of  such  events  on  tourism  oriented  SMEs.  The 
results of this exercise and recommendations addressed to future event hosts will be presented 
at a European Conference. 

A big number of European tourist destinations are developing successful practices to promote 
tourism  sustainability.  Such  practices  can  serve  as  examples  to  all  destinations  wishing  to 
improve  their  tourism.  The  Commission,  in  collaboration  with  the  Member  States,  will 
explore  the  opportunity  to  promote  awareness  of  such  good  practices,  possibly  through  a 
‘European destinations of excellence award’. 

2.3.3. 

Improving the visibility of tourism: a common goal 

The  Commission,  in  partnership  with  the  national  public  administrations  and  industry 
stakeholders, is continuously working to enhance the visibility and understanding of European 
tourism since often, due to its complexity, it is viewed only in its narrow definition rather than 
as a phenomenon which affects many parts of the economic and social fabric. 

Each year, since 2002, an Annual European Tourism Forum is hosted by a different Member 
State. It is organised in close collaboration with the Commission, the Member States and the 
European  tourism  industry.  The  organisation  of  the  Forum  in  several  new  Member  States 
(2004 Hungary, 2005 Malta and 2006 Cyprus) gives added value to this event. 

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See: http://europa.eu.int/comm/culture/eac/other_actions/cap_europ/cap_eu_en.html 

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The Commission will continue to work in close partnership with all involved actors to: 

•  Ensure that the matters discussed are relevant to the current context; 

•  Increase the ownership of the Forum by the tourism stakeholders and; 

•  Improve the visibility of this event throughout Europe. 

Also a number of Council Presidencies have been organising Tourism Ministerial meetings, 
specific Conferences and events or co-organising the European Tourism Forum with the host 
countries.  Such  events  are  valuable  since  they  facilitate  close  contacts  amongst  decision- 
makers  and  stakeholders,  highlight  specific  issues  and  provide  high  visibility  to  European 
tourism. The Commission will continue to actively support such initiatives and to encourage 
future Presidencies to do likewise. 

3. 

CONCLUSION 

The complexity of tourism and the broad diversity of involved actors require the collaboration 
of  all  stakeholders  in  the  planning  and  implementation  of  related  European  policies  and 
measures.  Community  institutions,  national  administrations,  professional  organisations, 
employers and employees, NGOs and researchers, should build up partnerships at all levels to 
improve  the  competitiveness  and  demonstrate  the  importance  of  European  tourism.  The 
development of the collaboration and partnerships in the framework of the renewed policy can 
be reviewed regularly during the European Tourism Forums. 

This  Communication  presents  what  and  how  the  Commission  intends  to  do  in  the  area  of 
tourism within the current EU legal framework in order to better exploit the growth and job 
potential of the sector in a sustainable way. It also highlights the way the various stakeholders 
can be involved in the Community actions. The renewed policy addresses all principal aspects 
of European policy making and allows the constructive collaboration of everyone concerned. 
Its degree of success depends of the response and active involvement of all stakeholders. 

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