Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Europe, the world's No 1 tourist destination – a new political framework for tourism in Europe
Date: 2010-06-30
Institutions: European Commission
Subjects: cultural heritage, economic growth, sustainable development, tourism, tourism policy, tourist profession

EN 

EN 

   EN 

 
 
EUROPEAN COMMISSION 

Brussels, 30.6.2010 
COM(2010) 352 final 

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

Europe, the world's No 1 tourist destination – a new political framework for tourism in 
Europe 

EN 

   EN 

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

Europe, the world's No 1 tourist destination – a new political framework for tourism in 
Europe 

1. 

INTRODUCTION 

Tourism is a major economic activity with a broadly positive impact on economic growth and 
employment  in  Europe.  It  is  also  an  increasingly  important  aspect  in  the  life  of  European 
citizens, more and more of whom are travelling, either for leisure or business. As an activity 
which impinges on cultural and natural heritage and on traditions and contemporary cultures 
in  the  European  Union,  tourism  provides  a  textbook  example  of  the  need  to  reconcile 
economic  growth  and  sustainable  development,  including  an  ethical  dimension.  Tourism  is 
also  an  important  instrument  for  reinforcing  Europe's  image  in  the  world,  projecting  our 
values and promoting the attractions of the European model, which is the result of centuries of 
cultural exchanges, linguistic diversity and creativity. 

European tourism has recently experienced a difficult economic situation, aggravated by the 
eruption  of  the  Eyjafjöll  volcano,  which  has  demonstrated  both  its  vulnerability  and  its 
resilience,  thanks  to  the  importance  Europeans  attach  to  travel  and  holidays.  Thus  the 
economic  and  financial  crisis,  which  has  affected  all  economies  since  2008,  has  had  a 
considerable  effect  on  demand  for  tourist  services.  More  recently,  the  interruption  of  air 
traffic  during  April  and  May  2010  due  to  the  presence  of  volcanic  ash  clouds  had  a  major 
effect on travel in Europe, causing significant disruption to airlines, travel agencies and tour 
operators as well as tourists themselves.  

This  difficult  background  for  the  tourism  industry  has  highlighted  a  number  of  challenges 
which  the  European  tourism  sector  must  face.  In  order  to  respond,  it  is  essential  that  all 
operators  in  the  sector  combine  their  efforts  and  work  within  a  consolidated  political 
framework that takes account of the new EU priorities set out in the 'Europe 2020' strategy: 
Europe  must  remain  the  world's  No  1  destination,  able  to  capitalise  on  its  territorial  wealth 
and diversity.  

With  this  communication,  the  European  Commission  intends  to  encourage  a  coordinated 
approach for initiatives linked to tourism and define a new framework for action to increase 
its competitiveness and its capacity for sustainable growth. It therefore proposes a number of 
European or multinational initiatives aimed at achieving these objectives, drawing in full on 
the Union's competence in the field of tourism as introduced by the Lisbon Treaty.  

EN 

2 

   EN 

 
2. 

THE  EUROPEAN  TOURISM  INDUSTRY,  A  KEY  ELEMENT  IN  EUROPEAN  GROWTH 
RESTING ON CLEARLY-DEFINED COMPETENCES 

2.1 

Growing economic importance 

Tourism  is  an  economic  activity  capable  of  generating  growth  and  employment  in  the  EU, 
while contributing to development and economic and social integration, particularly of rural 
and  mountain  areas,  coastal  regions  and  islands,  outlying  and  outermost  regions  or  those 
undergoing  convergence.  With  some  1.8  million  businesses,  primarily  SMEs,  employing 
approximately 5.2 % of the total workforce (approximately 9.7 million jobs, with a significant 
proportion of young people), the European tourism industry1 generates over 5 % of EU GDP, 
a figure which is steadily rising.2 Tourism therefore represents the third largest socioeconomic 
activity  in  the  EU  after  the  trade  and  distribution  and  construction  sectors.  Taking  into 
account the sectors linked to it,3 tourism's contribution to GDP is even greater; it is estimated 
to generate over 10 % of the European Union's GDP and provide approximately 12 % of all 
jobs. In this regard, observing the trend over the last ten years, growth in employment in the 
tourism sector has almost always been more pronounced than in the rest of the economy. 

In addition, the European Union remains the world's No 1 tourist destination, with 370 million 
international  tourist  arrivals  in  2008,  or  40  %  of  arrivals  around  the  world,4  7.6  million  of 
them from the BRIC countries (Brazil, Russia, India and China), a significant increase over 
the  4.2  million  in  2004.  These  arrivals  generated  revenues  of  around  EUR  266  billion,  75 
billion of which was from tourists coming from outside the Union.5 As regards journeys by 
Europeans themselves, they are estimated at approximately 1.4 billion, some 90 % of which 
were  within  the  EU.  According  to  estimates  by  the  World  Tourism  Organisation  (WTO), 
international  tourist  arrivals  in  Europe  should  increase  significantly  in  the  coming  years. 
Finally, European tourists are one of the largest groups travelling to third countries, providing 
an extremely important source of revenue in many countries. These elements justify providing 
more detail of the external dimension of EU tourism policy, in order to maintain tourist flows 
from third countries but also to support EU partners, particularly in the Mediterranean. 

2.2 

Competences defined by the Lisbon Treaty added to an extensive track record 

The  European  Commission,  in  cooperation  with  the  Member  States  and  associations 
representing  the  sector,  has  invested  considerable  effort  over  a  number  of  years  in 
implementing  a  series  of  actions  intended  to  strengthen  European  tourism  and  its 
competitiveness.6 At the same time, the Commission has also set up an integrated and highly 

1 

2 

3 

4 
5 
6 

tourism 

the  EU 

the  Competitiveness  of 

Traditional suppliers of travel and tourism services (hotels, restaurants, travel agencies, car hire, charter 
airlines, tourist coaches, cruise vessels, etc.) offering goods and services directly to visitors. 
Study  on 
(cf. 
http://ec.europa.eu/enterprise/newsroom/cf/document.cfm?action=display&doc_id=5257&userservice_i
d=1&request.id=0 ). 
In  particular  distribution,  construction,  transport  companies  in  general  (air,  rail,  maritime,  bus/coach, 
etc.) and the cultural sector (including cultural and creative industries). 
WTO World Tourism Barometer, Volume 8, January 2010. 
Eurostat, Statistics in Focus, 23/2009 (Balance of payments statistics). 
Communications  from  the  Commission:  Agenda  for  a  sustainable  and  competitive  European  tourism 
(COM(2007)621 final); A renewed EU Tourism Policy - Towards a stronger partnership for European 
Tourism (COM(2006)134 final). 

industry,  September  2009 

EN 

3 

   EN 

 
                                                 
developed  system  to  protect  passengers  and  consumers,  including  those  with  disabilities  or 
reduced mobility, on all means of transport.7 

Over  the  years,  the  European  Union  has  been  able  to  lay  the  foundations  for  a  European 
tourism  policy,  stressing  those  factors  which  determine  its  competitiveness  while  taking 
account  of  the  need  for  sustainable  development.  With  the  entry  into  force  of  the  Lisbon 
Treaty, the importance of tourism is recognised; the European Union now has powers in this 
field to support, coordinate and complement action by the Member States. It is a step forward 
which provides the necessary clarification and enables the setting up of a coherent framework 
for action.  

As laid down by Article 195 of the TFEU, the European Union can therefore: 

•  promote  the  competitiveness  of  undertakings  in  this  sector  and  create  an  environment 

conducive to their development; 

•  encourage  cooperation  between  the  Member  States,  particularly  through  the  exchange  of 

good practice; 

•  develop an integrated approach to tourism, ensuring that the sector is taken into account in 

its other policies. 

This  new  legal  framework  is  a  real  opportunity  to  carry  out  actions  with  a  high  European 
added  value  which  take  into  consideration  the  concern  to  reduce  administrative  burdens. 
These actions are intended to benefit all countries in the European Union, as each of them, to 
differing degrees, has an interest in developing its tourist potential. 

3. 

CHALLENGES AND OPPORTUNITIES FACING THE EUROPEAN TOURISM INDUSTRY 

European  tourism  faces  major  challenges,  which  are  at  the  same  time  opportunities.  On  the 
one  hand,  the  industry  must  adapt  to  social  developments  which  will  influence  tourist 
demand;  on  the  other,  it  must  face  up  to  the  constraints  imposed  by  the  sector's  current 
structure, its specific characteristics and its economic and social context. 

European tourism has recently faced a difficult economic situation, aggravated by the eruption 
of the Eyjafjöll volcano. 

Firstly,  the  economic  and  financial  crisis  affecting  all  economies  since  2008  has  had  a 
considerable effect on demand for tourism services. Although they have continued to travel, 
Europeans  have  adapted  their  behaviour  to  circumstances,  in  particular  by  preferring  less 
distant  destinations  and  reducing  the  length  of  stay  or  their  spending.8  Tourist  activity  in 
Europe  therefore  fell  by  approximately  5.6  %  in  2009.  This  overall  figure  conceals  wide 
disparities: some regions, especially in eastern or northern Europe, were particularly affected 
and recorded a net fall of up to 8 % in the number of tourists. The crisis is ongoing, and the 
prospects for growth in tourist activity are poor. Thus, although WTO estimates foresee a rise 
in international tourist arrivals from 2010, it appears that recovery will be slower in Europe 
than in other regions of the world such as Asia. 

7 
8 

http://ec.europa.eu/transport/passengers/index_en.htm  
Overall  in  Europe,  international  tourist  arrivals  fell  by  approximately  5.6  %  in  2009,  although  some 
regions, especially  in eastern or northern Europe, recorded a fall of up to 8 % (WTO World Tourism 
Barometer, Volume 8, January 2010). 

EN 

4 

   EN 

 
                                                 
This  situation  has  been  aggravated  by  the  interruption  of  air  traffic  during  April  and  May 
2010 due to the presence of volcanic ash clouds. Although the disruption is difficult to assess, 
some estimates put the number of cancelled international tourist arrivals at over 2 million, and 
the  direct  cost  to  tour  operators  at  approximately  EUR  1  billion.  To  this  can  be  added  the 
revenues  lost  by  the  hotel  sector  and  other  tourism-related  activities,  which  are  hardly 
balanced  out  by  the  gains  made  by  some  services,  such  as  car  hire  or  taxi  services.  The 
consequences of this suspension of flights and certain courses of action were examined during 
the  videoconference  organised  by  the  European  Commission  with  the  Ministers  and 
Secretaries of State for Tourism on 28 April 2010 to assess the impact of the volcano crisis on 
tourism. 

This situation requires the sector to adapt to new constraints. A number of factors are today 
affecting the development of tourism activity in Europe. 

As with every other sector, the tourism industry is facing increasing global competition, with 
emerging  or  developing  countries  attracting  increasing  numbers  of  tourists.  Faced  with  this 
competition,  Europe  must  offer  sustainable  and  high-quality  tourism,  playing  on  its 
comparative  advantages,  in  particular  the  diversity  of  its  countryside  and  extraordinary 
cultural  wealth.9  It  must  also  strengthen  cooperation  with  those  countries  whose  population 
can provide a source of visitors to European destinations as their standard of living increases.  

Another  significant  challenge  relates  to  the  demographic  trends  observed  in  Europe  and  the 
new  tourist  behaviour  or  expectations  which  result.  These  changes  require  the  industry  to 
adapt  quickly  in  order  to  retain  its  level  of  competitiveness.  In  particular,  the  number  of 
persons  aged  over  65  is  expected  to  reach  20  %  of  the  population  in  2020.  This  population 
group,  consisting  of  individuals  with  both  purchasing  power  and  leisure  time,  represents 
significant market potential but also requires changes in the sector to meet its particular needs. 
The same applies to accommodating the increasing number of tourists with reduced mobility 
(recently estimated at 127 million persons), who have specific needs and must be integrated 
into the tourist supply and service structure. 

Other  structural  challenges  must  be  fully  integrated  into  tourism  policy.  Thus  the  supply  of 
tourism  services  must  in  future  take  into  account  constraints  linked  to  climate  change,  the 
scarcity  of  water  resources,  pressure  on  biodiversity  and  the  risks  to  the  cultural  heritage 
posed by mass tourism. Tourism businesses need to reduce their use of drinking water where 
there  is  a  risk  of  drought,  and  reduce  their  greenhouse  gas  emissions  and  environmental 
footprint. 

In  the  coming  years,  climate  change  in  Europe  could  determine  a  restructuring  of  travel 
models  and  affect  certain  destinations.  Moreover,  declining  snow  cover  in  Europe's 
mountainous regions could cause a fall in winter tourism. At the same time, rising sea levels 
could bring changes for tourism in coastal areas. European and national tourism policies will 
need  to  take  account  of  all  these  structural  changes,  both  by  taking  measures  to  relieve 
structural unemployment and by ensuring effective distribution of tourism-related investment. 

The development of information and communication technologies (ICT) and their increasing 
use  by  consumers  has  also  radically  changed  the  relationship  between  the  tourism  industry 
and its customer base. An assessment of the level of awareness, accessibility and use of these 
services by the various operators concerned has shown that they use ICT in different ways by 

9 

300 of the 800 UNESCO World Heritage sites are within the EU.  

EN 

5 

   EN 

 
                                                 
virtue of factors such as their basic skills, their size and their relative position in the tourist 
chain. 

In  the  light  of  all  these  challenges  and  opportunities,  businesses  in  the  sector,  particularly 
SMEs, are not always in a position to adapt rapidly, given their limited financial resources and 
their employees' lack of qualifications.  

Finally,  there  are  also  specific challenges  determined  by  the  particular  characteristics  of  the 
European tourism sector. These are linked on the one hand to consumer models, particularly 
seasonal distribution and tourist movements, and on the other to production models, i.e. the 
value  chain  and  tourist  destinations.  Tourist  demand  is  currently  concentrated  very  strongly 
on the months  of  July and August.  This seasonal aspect not only affects revenue flows,  but 
results in non-optimum use of existing infrastructure and staff.  

4. 

AMBITIOUS OBJECTIVES FOR A NEW ACTION FRAMEWORK  

In the face of the crisis and the increasing constraints on its activity, European tourism must 
evolve. This requires changes at all levels. The European Union must contribute to this and 
encourage a voluntary policy to speed up growth and create the conditions for making tourism 
more attractive. 

In  line  with  the  Lisbon  Treaty,  the  main  aim  of  European  tourism  policy  is  to  stimulate 
competitiveness  in  the  sector,  while  being  aware  that  in  the  long  term,  competitiveness  is 
closely linked to the 'sustainable' way in which it is developed. This aim is clearly linked to 
the Union's new 'Europe 2020' economic strategy, and in particular the flagship initiative 'An 
industrial  policy  for  the  globalisation  era'.  Moreover,  tourism  can  also  contribute  to  other 
flagship initiatives, particularly 'Innovation Union', 'A Digital Agenda for Europe'10 and 'An 
Agenda for new skills and jobs'. In addition, the development of a more active tourism policy, 
based in particular on fully exercising the freedoms guaranteed by the Treaties, could make a 
significant contribution to relaunching the internal market. 

The  European  action  framework  aims  first  of  all  to  encourage  the  prosperity  of  tourism  in 
Europe.  But  it  must  also  respond  to  concerns  relating  to  social  matters,  territorial  cohesion 
and the protection of and capitalisation on natural and cultural heritage. Moreover, it will need 
to enable the sector to become more resilient to the impact of climate change and more able to 
mitigate the effects of the possible structural changes caused by tourism. Indirectly, tourism 
also  helps  to  strengthen  the  feeling  of  European  citizenship  by  encouraging  contacts  and 
exchanges between citizens, regardless of differences in language, culture or traditions. It is 
also  important  in  this  context  that  European  citizens  are  aware  of  their  rights  and  can  take 
advantage of them when moving within or outside the European Union; they must be able to 
exercise  their  rights  as  European  citizens  as  easily  as  within  their  own  country.  The 
Commission  will  propose  solutions  for  minimising  the  obstacles  encountered  by  European 
citizens when they try to obtain tourism services outside their own country. 

These  requirements  for  an  ambitious  European  policy  were  recognised  at  the  informal 
meeting of ministers for tourism organised on the initiative of the Spanish Presidency of the 
Council on 15 April 2010. Following the high-level conference on European tourism held in 

10 

Communication from the Commission: A Digital Agenda for Europe (COM(2010) 245 final). 

EN 

6 

   EN 

 
                                                 
Madrid on 14 April 2010, which served as a 'summit' for the sector, this informal ministerial 
meeting represented a decisive step towards committing the Union and all the Member States 
to  a  competitive,  sustainable,  modern  and  socially  responsible  tourism  sector.  Thus  the  EU 
ministers  for  tourism  supported  the  'Madrid  Declaration',  which  establishes  a  series  of 
recommendations concerning the implementation of a consolidated European tourism policy, 
stresses  the  need  to  strengthen  sustainable  competitiveness  in  the  sector  and  recognises  the 
added value of action by the EU on tourism, providing a worthwhile complement to action by 
the Member States through an integrated approach to tourism. 

To achieve these objectives, actions promoting tourism may be grouped under the following 
four priorities: 

(1) 

(2) 

(3) 

Stimulate competitiveness in the European tourism sector;  

Promote the development of sustainable, responsible and high-quality tourism;  

Consolidate the image and profile of Europe as a collection of sustainable and high-
quality destinations;  

(4)  Maximise  the  potential  of  EU  financial  policies  and  instruments  for  developing 

tourism.  

These four priorities provide the skeleton for a new action framework for tourism which the 
Commission  intends  to  implement  in  close  cooperation  with  the  Member  States  and  the 
principal operators in the tourism industry. 

5. 

A NEW ACTION FRAMEWORK TO MEET THE CHALLENGES 

In  accordance  with  the  objectives  set  out  above,  and  taking  full  account  of  the  new 
institutional  framework  provided  by  the  Lisbon  Treaty,  the  European  Commission  is 
convinced  that  a  number  of  European  or  multinational  actions  can  be  carried  out  while 
respecting  the  principle  of  subsidiarity  defined  by  the  Treaty  and  the  competence  of  the 
Member States in the field of tourism. 

5.1 

Stimulate competitiveness in the European tourism sector  

Improving the competitiveness of tourism in the EU plays a crucial role in strengthening the 
sector with a view to dynamic and sustainable growth. In order to achieve this objective, it is 
worthwhile  developing  innovation  in  tourism,  reinforcing  the  quality  of  supply  in  all  its 
dimensions, improving professional skills in the sector, attempting to overcome the seasonal 
nature of demand, diversifying the supply of tourist services and helping to improve statistics 
and  analyses  relating  to  tourism.  The  tourism  sector  has  significant  potential  for  the 
development of entrepreneurial activity, as the vast majority of tourism businesses are small 
and  medium-sized  enterprises  (SMEs).  Furthermore,  there  are  important  synergies  with  the 
arts  and  craft  trades  which  can  help  to  preserve  the  cultural  heritage  and  develop  local 
economies. 

Promoting diversification of the supply of tourist services 

The  European  Union  can  contribute  to  the  diversification  of  supply  by  encouraging  intra-
European  flows  through  capitalising  on  the  development  of  thematic  tourism  products  on  a 
European scale. Transnational synergies can ensure better promotion and a higher profile for 
tourism.  This  may  include  the  full  range  of  heritage:  cultural  heritage  (including  cultural 

EN 

7 

   EN 

 
itineraries), contemporary culture, protected natural sites, health and wellbeing (including spa 
tourism), educational, wine and food, historical, sport or religious tourism, agri-tourism, rural 
tourism, or tourism capitalising on the maritime and sub-aquatic cultural heritage, industrial 
heritage or the economic fabric of a region. 

To this end, the Commission has already begun cooperating with the Council of Europe in the 
field of cultural tourism in order to better assess its impact and give it a higher profile. Cross-
border  initiatives  have  also  been  set  up  in  recent  years,  such  as  European  cycle  routes  or 
pilgrimage  routes,  i.e.  the  Via  Francigena  and  Santiago  de  Compostela.  The  Commission 
considers  that  a  number  of  these  initiatives  would  benefit  from  recognition  and  from  a 
European  seal  of  legitimacy  which  would  guarantee  their  transnational  character.  Such 
recognition of their European vocation could create a similar dynamic to that created by the 
success of the European Capitals of Culture, which act as a catalyst for local development and 
tourism  by  implementing  an  ambitious  and  attractive  annual  cultural  programme  on  a 
European scale.11 This experiment may also be extended to cover those regions forming part 
of the 'Natura 2000' network, which cover more than 17 % of European territory and are areas 
of  interest  for  tourism,  provided  that  the  principles  of  conservation  for  the  natural 
environments concerned are respected. 

ACTIONS PLANNED: 

(1)  Develop  a  coherent  strategy  for  diversifying  the  promotion  of  tourist  services  and 
capitalise on Europe's common heritage, particularly by creating a European heritage 
label, alongside actions such as European Heritage Days or the European Union Prize 
for Cultural Heritage. 

(2)  Encourage the integration into tourism strategies of 'natural' heritage, which will also 

benefit from labelling initiatives. 

Developing innovation in the tourism industry 

Innovation  and  new  information  technologies  have  become  determining  factors  for  the 
competitiveness  of  the  tourism  industry  and  for  strengthening  exchanges  with  other  sectors 
linked to it. Their use by public and private tourism operators, particularly SMEs, should be 
strengthened  through  awareness-raising  and  partnership  initiatives  and  appropriate  use  of 
various national and European programmes. There is also a need to accelerate the integration 
of information society tools and services into all tourism activities, particularly those carried 
out by SMEs, and facilitate access for the various tourism operators to the relevant financial 
instruments 

ACTIONS PLANNED: 

(3)  The  Commission  will  launch  an  'ICT  and  tourism'  platform  for  stakeholders  to 
facilitate  the  adaptation  of  the  tourism  sector  and  its  businesses  to  market 
developments in new information technologies and improve their competitiveness by 
making the maximum use of possible synergies between the two sectors. 

(4)  In preparing its forthcoming communication on electronic commerce in the internal 

11 

On average, during the period 1995-2004, the number of overnight stays in cities holding the title in a 
given year increased by 12 % relative to the previous year. 

EN 

8 

   EN 

 
                                                 
market, which will assess the implementation of the electronic commerce Directive, 
the Commission will examine the possibilities for strengthening the integration of the 
tourism sector in this context. 

Improving professional skills 

The modernisation of tourism activity should be accompanied by a stepping-up of efforts to 
improve the professional skills of workers in the sector, with a particular view to facilitating 
their  adaptation  to  new  technologies  and  new  market  expectations,  for  example  in  terms  of 
health  and  well-being,  and  encouraging  their  mobility.  Such  efforts  would  form  part  of  the 
'Europe 2020' strategy, and particularly the flagship initiative 'An Agenda for new skills and 
jobs'. 

ACTIONS PLANNED: 

(5)  In order to support training in the tourism sector, the Commission will endeavour to 
promote  the  opportunities  offered  by  various  EU  programmes  such  as  Leonardo  or 
the Competitiveness and Innovation Framework Programme (CIP) with its 'Erasmus 
for young entrepreneurs' and 'E-skills for innovation' strands. 

Encouraging an extension of the tourist season 

Better use of existing tourist infrastructure and staff in the low season could enable businesses 
to  make  better  use  of  their  infrastructure  and  improve  their  productivity,  providing  a  more 
stable and motivated workforce. A first step in this direction has already been taken with the 
CALYPSO initiative,12 which has given rise to an inventory of existing good practice within 
Member States. 

ACTIONS PLANNED: 

(6)  Provide  a  voluntary  tourism  exchange  mechanism  between  Member  States,13 
enabling  in  particular  certain  key  groups  such  as  young  or  elderly  people,  people 
with reduced mobility and low-income families to travel, particularly during the low 
season. 

(7)  Develop  a  voluntary  online  information  exchange  mechanism  to  improve  the 
coordination  of  school  holidays  in  the  Member  States,  without  prejudice  to  their 
cultural traditions. 

12 

13 

CALYPSO is a preparatory action adopted by the European Parliament in 2008 for a three-year period 
with  the  objective  of  promoting  partnerships  between  the  public  and  private  sectors  and  the  social 
economy,  driven  by  the  European  Commission,  with  the  main  aim  being  out-of-season  exchanges  of 
tourists in four target groups (young and elderly people, people with reduced mobility and low-income 
families) under Calypso, at least between two Member States and/or candidate countries. 
Existing good practice, particularly from the Iberian peninsula, shows that the public sector can finance 
such mechanisms with a positive return on investment (over EUR 1.5 per euro spent) if account is taken 
of  the  benefits  brought  about  by  the  creation  of  jobs,  additional  opportunities  offered  to  the  private 
sector and tax revenues generated by increased activities. These benefits also have a positive impact in 
the country of origin. 

EN 

9 

   EN 

 
                                                 
Consolidating the socioeconomic knowledge base for tourism 

To make the sector more competitive, the Commission considers it essential to have a better 
socioeconomic  knowledge  base  at  European  level  for  tourism  and  its  relationship  with  the 
environment.  In  this  regard,  the  ongoing  review  of  Directive  95/57/EC  on  the  collection  of 
statistical  information  in  the  field  of  tourism  is  an  important  step,  as  it  will  take  account  of 
trends in European tourism and the needs of users. 

However,  there  is  a  case  for  going  further  and  encouraging  cooperation  at  European  level 
between  Member  States,  destinations,  industry  representatives  and  public  and  private 
operators in order to consolidate statistics and analyses relating to the sector. In order to do 
this while retaining its role in coordinating statistical activity at European level (devolved to 
Eurostat),  the  Commission  considers  it  necessary  to  develop  knowledge  networks  between 
research institutes, universities and public and private monitoring units, in close cooperation 
with regional and national authorities, national tourism offices, statistical institutes and other 
operators.  The  coordination  and  development  of  research  in  the  field  of  tourism  on  a 
European  scale  are  essential  for  a  more  integrated  approach  and  greater  synergy.  It  also 
includes  cooperation  with  European  and  international  organisations,  such  as  the  OECD  and 
WTO. 

ACTIONS PLANNED: 

(8)  In its annual communication, 'Consumer Markets Scoreboard', the Commission will 
monitor  the  market  by  measuring  European  consumer  satisfaction  with  various 
tourism services (transport, hire, accommodation, travel, package tours). 

(9)  In the short term, the Commission will develop a pilot project aimed at networking 
research  institutes,  universities,  public  and  private  monitoring  units,  regional  and 
national authorities and national tourism offices. 

(10) In  the  medium  term,  based  on  the  results  of  the  pilot  project,  the  Commission  will 
promote  the  implementation  of  a  'virtual  tourism  observatory'  to  support  and 
coordinate research activities by the various national research institutes and provide 
socioeconomic data on tourism at European level.  

5.2 

Promote the development of sustainable, responsible and high-quality tourism  

The  sector's  competitiveness  is  closely  linked  to  its  sustainability,  as  the  quality  of  tourist 
destinations  is  strongly  influenced  by  their  natural  and  cultural  environment  and  their 
integration into a local community. The sustainability of tourism covers a number of aspects: 
the  responsible  use  of  natural  resources,  taking  account  of  the  environmental  impact  of 
activities  (production  of  waste,  pressure  on  water,  land  and  biodiversity,  etc.),  the  use  of 
'clean' energy, protection of the heritage and preservation of the natural and cultural integrity 
of  destinations,  the  quality  and  sustainability  of  jobs  created,  local  economic  fallout  or 
customer  care.  These  principles  are  largely  reflected  in  tourism  strategies  introduced  at 
national and regional level, although they find insufficient expression in specific actions. 

At  EU  level,  the  Commission  has  introduced  a  number  of  tools  to  facilitate  sound 
environmental management for businesses, such as the EU Eco-label or the Community eco-

EN 

10 

   EN 

 
 
management  and  audit  scheme  (EMAS).  However,  the  response  from  tourism  businesses 
across Europe  to  concerns about sustainability has varied widely. The Commission  has  also 
made  available  to  Member  States  documents  facilitating  the  implementation  of  European 
environmental legislation, in terms of both individual projects and strategic planning.14 

In  this  context,  the  Commission  will  be  supported  by  the  initiative  implemented  in 
cooperation  with  the  Network  of  European  Regions  for  a  sustainable  and  competitive 
European  tourism  (NECSTouR)  and  the  EDEN  destinations  network  with  a  view  to 
developing  a  system  of  indicators  for  the  sustainable  management  of  destinations.  This 
practice  should  be  extended  in  order  to  make  it  possible  to  enhance  the  value  of  European 
tourist destinations which adopt effective practices to promote the sustainability of tourism. In 
this regard, it is essential to encourage initiatives which promote responsible management of 
resources (energy, water, raw materials, etc.) and guarantee optimum conditions for services 
and safety, particularly when catering for elderly people or those with reduced mobility.  

ACTIONS PLANNED: 

(11) Develop,  on  the  basis  of  NECSTouR  or  EDEN,  a  system  of  indicators  for  the 
sustainable management of destinations. Based on this system, the Commission will 
develop a label for promoting tourist destinations. 

(12) Organise  awareness-raising  campaigns  for  European  tourists  concerning  the  choice 
of destinations and means of transport, relationships with the local population in the 
destinations visited, and combating the exploitation of woman and children. 

(13) Develop a European 'Qualité Tourisme' brand, based on existing national experience, 
to  increase  consumer  security  and  confidence  in  tourism  products  and  reward 
rigorous efforts by tourism professionals whose aim is quality of tourism service for 
customer satisfaction. 

(14) Facilitate  identification  by  the  European  tourism  industry  of  risks  linked  to  climate 
change  in  order  to  avoid  loss-making  investments,  and  explore  opportunities  for 
developing and supplying alternative tourism services. 

(15) Propose  a  charter  for  sustainable  and  responsible  tourism  and  establish  a  European 
prize  for  tourism  businesses  and  destinations  respecting  the  values  set  out  in  the 
charter. 

(16) Propose a strategy for sustainable coastal and marine tourism. 

(17) Establish  or  strengthen  cooperation  between  the  European  Union  and  the  main 
emerging  countries  (China,  Russia,  India,  Brazil)  and  Mediterranean  countries  to 
promote sustainable and responsible tourism development models and the exchange 
of best practice. 

14 

http://ec.europa.eu/environment/nature/natura2000/index_en.htm. 

EN 

11 

   EN 

 
 
                                                 
5.3 

Consolidate the image and profile of Europe as a  collection of sustainable and 
high-quality tourist destinations 

The image and perception of Europe as a collection of tourist destinations are aspects closely 
linked to the competitiveness of tourism.15 Given the intensity of global competition, but also 
the potential of a number of third countries as sources for tourism in Europe, it is essential to 
carry  out  actions  aimed  at  stimulating  tourist  demand  for  Europe.  There  is  already  one 
important initiative for promoting Europe among third countries through the visiteurope.com 
website, administered by the European Travel Commission (ETC) and launched in 2006 with 
the support of the European Commission. 

The image of Europe and its perception as a collection of sustainable and high-quality tourist 
destination must be improved. Making European destinations more attractive and raising their 
profile  should  bring  significant  economic  benefits,  by  stimulating  non-European  tourist 
arrivals and also by increasing interest by Europeans in travelling within their own continent. 

With  a  view  to  exploring  the  best  options  for  the  joint  presentation  of  Europe's  supply  of 
tourist  services,  the  Commission  considers  it  necessary  to  promote  this  image  in  world 
markets, and particularly in certain third countries (e.g. the USA, Japan, China, Russia, India 
and Brazil) through joint initiatives with the Member States and European industry. 

To this end, it is worthwhile exploring a number of paths with a view to adding value to and 
raising the profile of various themed European or multinational products, particularly at large-
scale  tourism  fairs  or  exhibitions,  or  to  encourage  capitalising  to  a  greater  extent  on  major 
cultural  and  sporting  events  such  as  the  European  Capitals  of  Culture,  European  Heritage 
Days, the Olympic Games or universal exhibitions, which provide the potential for increased 
development of tourism in Europe. 

ACTIONS PLANNED: 

(18) Create a true 'Europe brand' in cooperation with the Member States to complement 
promotional efforts at national and regional level and enable European destinations to 
distinguish themselves from other international destinations. 

(19) Promote the visiteurope.com website in order to increase the attractiveness of Europe 
as a collection of sustainable and high-quality tourist destinations, particularly among 
emerging countries. 

(20) Encourage  joint  promotional  actions  at  major  international  events  or  large-scale 

tourism fairs and exhibitions. 

(21) Strengthen European Union participation in international bodies, particularly within 
the context of the World Tourism Organisation, the OECD, T20 and Euro-Med. 

15 

EN 

the  Competitiveness  of 

(cf. 
Study  on 
http://ec.europa.eu/enterprise/newsroom/cf/document.cfm?action=display&doc_id=5257&userservice_i
d=1&request.id=0 ). 

industry,  September  2009 

the  EU 

tourism 

12 

   EN 

 
 
                                                 
5.4 

Maximise the potential of EU financial policies and instruments for developing 
tourism  

Tourism  policy  is  characterised  by  its  transverse  nature.  A  large  number  of  other  European 
policies  have  a  direct  or  indirect  impact  on  tourism.  This  is  particularly  true  of  transport 
policy  (sustainable  mobility,  passenger  rights  and  safety  and  transport  quality),  competition 
(questions concerning the concentration of businesses, particularly in offering tourist services 
online, vertical integration and public aid), the internal market (freedom of establishment and 
freedom  to  provide  tourism-related  services,  promotion  of  service  quality,  development  of 
electronic commerce), taxation (tax obstacles to the smooth operation of the internal market, 
treatment  of  businesses  in  the  sector  such  as  travel  agencies,  tax  concessions),  consumer 
protection  (rights  deriving  from  signature  of  the  contract,  unfair  commercial  practices, 
distance  sales),  the  environment,  employment  and  training,  culture  or  regional  and  rural 
development policy. 

The Commission is determined to ensure better integration of tourism into its various policies 
and  ensure  that  the  proper  application  of  the  legislation  in  force  releases  the  sector's  full 
competitive potential. It will step up its efforts to coordinate the various policies concerned, 
with the aim of ensuring that the interests and needs of the tourism industry are fully taken 
into account when formulating and implementing its policies. 

With regard to internal market policy, the tourism sector should in future benefit fully from 
the integration of the European market in services. In particular, Directive 2006/123/EC of the 
European  Parliament  and  of  the  Council  of  12  December  2006  on  services  in  the  internal 
market  will  enable  a  significant  simplification  of  procedures  for  service  providers  in  the 
tourism  sector  and  the  elimination  of  a  number  of  legal  and  administrative  obstacles  which 
have hitherto restricted their access to various markets in the European Union Member States. 

The Commission recognises the substantial importance of maritime and coastal tourism as a 
catalyst  for  economic  development  and  intends  to  carry  out  actions  to  encourage  its 
development  as  part  of  the  EU's  integrated  maritime  policy.  Economic  diversification  into 
tourism represents a priority for many coastal areas, where the decline in economic activities 
linked to fisheries and shipbuilding in particular have led to a fall in incomes and increased 
unemployment.  This  diversification  is  supported  by  the  European  Fisheries  Fund  (EFF)  as 
part  of  local  development  strategies.  Ways  of  realising  the  potential  of  the  nautical  and 
pleasure  boat  industry  for  the  economic  growth  of  the  islands  and  coastal  and  maritime 
regions will also be explored. 

EU  rural  development  policy  is  also  of  considerable  importance  to  the  tourism  sector. 
Through the European Agricultural Fund for Rural Development (EAFRD), the Commission 
can support, among other things, the establishment of businesses active within rural tourism, 
the development and promotion of agri-tourism and capitalisation on the cultural and natural 
heritage of rural regions, including mountain areas. 

For the current programming period, the Commission will continue to promote and mobilise 
Community  support  instruments  and  programmes  in  favour  of  tourism.  These  instruments 
include the various European structural funds (ERDF, ESF), the European Agricultural Fund 
for  Rural  Development  (EAFRD),  the  European  Fisheries  Fund  (EFF)  and  the  framework 
programme  for  research  and  development,  which  will  continue  to  finance  the  setting  up  of 
specific projects. Finally, the Competitiveness and Innovation Framework Programme (CIP) 
is  of  particular  importance  to  tourism  in  that,  since 2008,  it  has  supported  the  creation  of 

EN 

13 

   EN 

 
European  networks  for  competitive  and  sustainable  tourism.  For  the  period  after  2013, 
possibilities for supporting tourism through the various European funds and by consolidating 
existing preparatory actions in this field will depend on the guidelines adopted with regard to 
the European Union's action priorities, bearing budget constraints in mind. 

Developing  the  rights  of  air  and  rail  passengers  is  of  significant  importance  for  European 
tourism  thanks  to  a  legal  framework  which  protects  tourists  encountering  difficulties  while 
travelling. The Commission's aim is for passengers travelling by sea, bus and coach to have 
similar rights. The ongoing review of the Directive on package travel, package holidays and 
package tours is another positive element in reinforcing consumer confidence in the tourism 
industry.  Moreover,  the  Commission  will  continue  to  cooperate  closely  with  the  Member 
States, the tourism industry and stakeholders' organisations in the sector to improve safety in 
accommodation structures, particularly with regard to fire risks. 

In addition, aware of the growing importance of tourism for Europe, including tourism from 
third countries, the Commission will examine the various possibilities and instruments under 
the policy on visas and external border crossings in order to make optimum use of them. 

In order to enable European tourism to continue to develop in a competitive and sustainable 
manner, in accordance with the 'Europe 2020' strategy and the Lisbon Treaty, the Commission 
will examine ways of reinforcing actions supporting and coordinating European tourism. 

6. 

CONCLUSION 

European tourism policy needs a new impetus. Faced with challenges which require concrete 
responses and efforts to adapt, operators in the European tourism industry need to be able to 
combine  their  efforts  and  work  within  a  consolidated  political  framework  which  takes  the 
EU's  new  priorities  into  consideration.  Taking  account  of  the  European  Union's  new 
competences in the field of tourism, this communication defines an ambitious framework for 
making  European  tourism  a  competitive,  modern,  sustainable  and  responsible  industry.  The 
Commission envisages a number of specific initiatives to give the European tourism sector the 
means to adapt and develop. These actions complement the policies of the Member States and 
aim  to  coordinate  efforts  by  determining  measures  which  provide  a  real  European  added 
value. The success of this strategy will depend on the commitment of all stakeholders and on 
their capacity to work together to implement it.  

In the future, the Commission will continue its efforts to have regular, rapid and transparent 
exchanges of views with the Member States and the tourism industry on initiatives relating to 
tourism. In order to do this, it will rely in particular on the advisory  committee on tourism. 
Public  administrations  will  also  be  in  a  position  to  inform  the  various  national  and  regional 
stakeholders of Commission initiatives on a regular basis. 

This consolidated framework is a first step. For this reason, the Commission will continue to 
discuss  tourism  initiatives  between  now  and  the  European  Forum  on  tourism  in  November 
2010, when a more detailed action plan may be discussed with the Member States and with 
public and private European tourism operators. In the medium term, it will then take stock of 
the strategy in order to assess its success and move forward.  

EN 

14 

   EN