Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions - Enhancing tourism's potential for employment - Follow-up to the conclusions and recommendations of the High Level Group on Tourism and Employment
23. 6. 1999 EN Official Journal of the European Communities C 178/3 COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE EUROPEAN PARLIAMENT, THE ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Enhancing tourism’s potential for employment Follow-up to the conclusions and recommendations of the High Level Group on Tourism and Employment (1999/C 178/03) INTRODUCTION to analyse the significant contribution of The impulse given by the European conference on Tourism and Employment organised by the Luxembourg Presidency and by the Commission in November 1997 was the start of a renewed effort tourism to meeting the key challenges facing Europe at the eve of the XXI century. Through its capacity to ensure greater cohesion among European regions, including the most peripheral areas of the Union where this activity often represents the main source of income and employment, tourism has an essential place in the integration of the economies of Europe’s regions and in the enhancement of their cultural and natural resources. influences which will There are a number of combine to provide new market opportunities for European businesses, especially SMEs, and will contribute to bringing closer European citizens and sharing their values. Among these are the phenomenon of ádemographic ageingí which profoundly change the shape of European society over the coming decades (1). Moreover, the introduction of the euro, the completion of the liberalisation process in transport and development of transport networks, the more efficient func- tioning of together with the rapidly growing expansion of new technologies and tools available through the information society, which will expand further the demand for new tourism-related activities and services, will facilitate citizens’ mobility and contribute to a greater internationalisation of European tourist flows. the Single Market, important - the recognition that tourism-related activities already account for a significant proportion and a varied range of jobs in Europe, and have a clear potential as job creators (it is forecast that from the existing level of 9 million jobs, tourism can create between 2,2 and 3,3 million extra jobs by 2010 based on an annual growth rate of 1,0 to 1,5 % (2); - the importance of the tourism industry which is widely represented in all EU countries (about 2 million businesses, mainly SMEs generating 5,5 % of GDP, 6 % of employment trade in services), as a valuable and 30 % of external átest-bedí European for employment strategy in the services sector. implementation of the the - the prominent role and responsibility of public authorities, at the local, regional and national levels, and the supporting role of the European Community, in the establishment of conditions in tourism. to sustainable development favourable Employment is at the top of the Commission’s priority actions in tourism. The priority to be given to the link between tourism and employment, in accordance with the need to mainstream employment policies at European level, reflects: the population above the standard (1) Within the next 20 years, retirement age of 65 will increase by 17 millions; numbers will grow further over subsequent decades. This larger group of older people will, on reaching retirement enjoy better health and longer life expectancy and greater wealth and disposable income than previous generations, contributing to further growth in tourism. they will be less likely to concentrate their tourist Given that in with school and workplace activity in peak periods to fit holidays, the seasonality of demand for tourist services. they can also help to iron out The report of the High Level Group on Tourism and Employment (HGL), and the report of the European Parliament on Jobs for the future of Europeí (3), confirm this analysis and emphasise the need for increased coordination of initiatives at several levels which will allow the potential of tourism in terms of the creation of extra and better jobs to be realised through balanced and sustainable development. This implies an inte- grated and cross-sectoral approach in relation to planning, development and operation of tourism activities with due regard to the protection and appropriate use of the natural and social environment in host areas. (2) conclusions and recommendations of the High Level Group on tourism and employment, European Commission - DG XXIII, October 1998. (3) European Parliament A4 - 475/98 report adopted on 9. 2. 1999, rapporteur MEP Thomas MANN. C 178/4 EN Official Journal of the European Communities 23. 6. 1999 together with the conclusions and This Communication, recommendations of the High Level Group, responds to the the Council of Ministers to focus on the link request of between tourism and employment (4). reflects also the desire expressed at EU level by the European Parliament, the Economic and Social Committee and the Committee of the Regions, by the Members States, and by the social partners to explore means the and conditions contribution of tourism to employment, and to encourage the implementation of positive measures to ensure that this potential will be realised. for maximising It This will contribute also to facilitate the establishment of a clear sectoral identity in the industry, which has been lacking in the past due to the fragmented nature of its components, explaining in some way why in political terms tourism has been neglected as an employment creator. The overall assessment of the report’s conclusions and recom- mendations, and the follow up actions proposed by the High Level Group, highlight the need for an improved and more in keeping with coordinated approach at Community level the priorities and policies of the Union and of the Member States. Such objective would be implemented by way of a measured approach consistent with recources available and guaranteeing their sound and efficient management. important Group in October 1998, have concluded a first phase of the response to the Council’s request. As a result there is now available: - a realistic assessment of job-creating potential in specific branches and activities related to tourism services; - an analysis of the main strengths and weaknesses of the European labour market in tourism; - a strategic review of conditions and means for boosting the competitiveness and improving the quality of employment recommen- through tourism, accompanied by practical dations addressed to interested parties. The comprehensive recomendations addressed by the High Level Group in its report, aim at: - Activating tourism businesses to meeting the needs of guests; - Making the tourism market work better by improving the business environment; - Modernising and improving the efficiency of tourism infra- structures; 1. BUILDING ON ACHIEVEMENTS (Tourism) Ministers, at its meeting of 26 The Council of November 1997, confirmed the significant contribution which a balanced and sustainable development of European tourism can make to combating unemployment in the Member States. the European Conference on Acknowledging the results of Employment and Tourism of 4-5 November 1997, held under the auspices of the Luxembourg Presidency, the Council invited the European Commission to explore this issue further and to report back on the progress made. - Up-grading human resources in tourism; - Encouraging sustainable development of tourism. The recommendations are addressed to: - the social partners, and to businesses in particular; The establishment, early in 1998, under the authority of the Commission and in consultation with the Member States, of the High Level Group on Tourism and Employment, and the presentation of the conclusions and recommendations of the - public authorities and tourist development and promotion offices; - the European Union. It is widely acknowledged that maximising the potential contribution of European tourism to growth and employment, and to sustainable development would be facilitated through granting greater recognition to the importance of the industry, and through a greater integration of relevant Community policies. This would lead to: - facilitating the integration of legitimate tourism concerns at various levels of decision making; - encouraging the process of modernisation of tourism-related services and the development of a leading to a more competitive industry capable of new entrepreneurial culture in tourism, maintaining its place in the face of strong competition from destinations outside Europe. (4) Council of (Tourism) Ministers of 26. 11. 1997. 23. 6. 1999 EN Official Journal of the European Communities C 178/5 2. BUILDING ON INFORMATION AND BEST-PRACTICE IN A EUROPEAN FRAMEWORK Community initiatives which are being taken in relation to tourism. the report The immediate publication of in all EU official languages and its wide dissemination by the Commission opened a second phase of action designed to encourage public authorities, professional associations and tourism busi- nesses to consider the problems raised in terms of their own experiences, and implement pratical measures accordingly. This process has started already in most Member States and in Members of the EEA, as indicated at the special meeting of the Tourism Advisory Committee held in Berlin on 10 March 1999. On that occasion, Member States’ representatives warmly welcomed the HLG report which was considered valuable, and, inter alia, as contributing to raising the recog- nition of the importance of tourism. The impulse given by the Commission to the question of tourism and employment, has contributed to improving analysis and raising awareness of necessary measures. It confirms the value of widespread consultation and cooperation on the conclusions and recommendations of the High Level Group, and highlights the need for an effective follow-up by means of coherent long-term strategy. The proposals of the HGL call for a combined effort consisting of: - the development of adequate supporting tools and greater exploitation of tunities opened by Community programmes relevant tourism; framework conditions, the oppor- to Initiatives taken by Member States in relation to issues raised by the High Level Group show a convergence of views on enhancing the competitiveness of European tourism in the interest of growth and employment. There is a general recog- nition also that this common goal could be better reached by improving the exchange of information and by developing synergies among the wide range of national and greater - the recognition that balanced and sustainable tourism policies, as part of an integrated policy approach, can make tourism an additional key element in meeting Europe’s major policy objectives, leading to the integration of tourism into structural reforms, and to the consideration of the European policy guidance on employment: tourism in the framework of The strategy should address the three main problem areas which emerge clearly from the overall assessment of the Group’s recommendations, namely: - the need for better knowledge, know-how and expertise in tourism; - improving information on, and access to targeted Community initiatives and programmes of interest to tourism; - greater exchange of information on development initiatives and on legislative measures affecting tourism, taken by public authorities in the Member States. In practical terms the main elements of such a strategy might include the following: - A Multiannual Tourism (framework) Programme as in the compromise proposed to the Council of Ministers by the Austrian Presidency following the Commission’s proposal, and which would allow the establishment of the main oper- ational tools required: is It recalled that Presidency includes: tative and qualitative information, ii) the compromise by the Austrian i) pooling and disseminating quanti- including best pratice; on user-friendly information developing tools Community programmes and initiatives of tourism; tation and cooperation with public tourism industry and other interested parties. to iii) developing a structured platform of consul- the authorities, interest - Policy guidelines proposed by the Commission and the Member States, with the candidate countries being invited to participate actively in the work. - The future Commission may wish to consider the oppor- tunity to review the existing arrangements for ad hoc consultation involving some 40 different European organi- sations and create a single new European Tourism Advisory C 178/6 EN Official Journal of the European Communities 23. 6. 1999 Board. The Board, which could advise the Commission on developments in European tourism, could be representative of major stakeholders and could include decision-takers of stature in the private and the public sectors. This could allow also the practice of utilising the best available expertise to explore key issues of importance to tourism being better exploited as part of a coherent approach to achieve targeted priorities (5). better jobs in underexploited areas of economic activity. It is also in keeping with the 1999 Employment Guidelines which contain a new commitment on the part of Member States to fully exploit the employment potential of the services sector where the EU is lagging far behind the US. - The mutual consultation and cooperation with other inter- national organisations active in tourism development such as the OECD, Council of Europe, UNESCO, world Tourism Organisation, could be developed in order to ensure greater synergies among individual initiatives and to promote EU achievements in this field (6). Essentially the approach outlined has its basis in a áknowledge drivení European tourism strategy which would encourage businesses, public authorities and other interested parties to better existing information, acquire and develop know-how, develop new processes, and learn from best practices. exploit 3. ENHANCING THE CONTRIBUTION OF TOURISM TO THE EUROPEAN EMPLOYMENT STRATEGY The Commission’s ongoing work on tourism and employment is part of the commitment of the European Community to place employment at the heart of Community actions. This is in keeping with the policy of mainstreaming the employment objective throughout Community programmes and policies which is the subject of a separate Communication (7) from the Commission in preparation of the decisions to be taken at the European Council in Cologne (of 3 to 4 June 1999). It reflects the need to use all available opportunities for inno- vative, environmentally sound and sustainable actions in favour of employment, and to establish new partnerships and new synergies leading to growth, together with additional and (5) The appropriateness of such an approach is confirmed by the positive experiences made for example in the context of the fight against child sex tourism, of urban tourism, of tourism and employment, of quality in tourism destinations, of tourism and the Euro. (6) The important the European results and ongoing work of Community in various aspects of tourism policy, for example in relation to the development of harmonised tourism statistics, to the integration of sustainable development principles in tourism, to the relation between culture and tourism, to the fight against child sex tourism, have provided relevant input to the activities of these organisations which have the opportunity to build on EU achievements for further developments among their members. (7) Community policies in support of Employment, COM(1999) 167 final of 21. 4. 1999. The report of the High Level Group on Tourism and Employment demonstrates why tourism could be a valuable partner, and the conditions under which it would be possible to develop fully its contribution to growth and employment. The report shows also that part of the tourism industry itself is increasingly sensitive to social and environmental concerns, and that the industry, some of whom have already taken individual commitments are ready to take an active part in developing employment opportunities in that and to cooperate in a sustained Community effort direction. leading representatives of trends in growth and employment (8) confirm the Recent findings of the High Level Group in relation to the potential of tourism in addressing the four key elements at the basis of the European employment strategy, namely developing entre- preneurship, improving employability, encouraging adaptability, and strengthening equal opportunities (9). The impact of tourism on employment should be seen also in relation to the general liberalisation of inbound and outbound tourism for EU Member States and to the fact that no major third countries still restrict the movement of people and their spending abroad on the basis of commitments taken under the General Agreement on Trade in Services (GATS) (10). The level of commitments undertaken regarding the tourism sector is far grater than any other sector, in the case of nearly all countries concerned (114 Members at March 1999), and the priority is now focussed on implementation. This clearly indicates the to expand their intention of most WTO Member States (8) According to the European Labour Force Survey, about 300 000 new jobs have been created in Europe between 1995 and 1997 in hotel and restaurant activities. Growth in this branch of tourism was more than 5 % on average, with the highest rate in Europe being realised in Germany and Austria (both 11 %). This increase in employment is directly linked to the steady growth of tourist flows and travel receipts in Europe. As confirmation of the faster growth rate of international tourism compared to domestic tourism, the first six months of 1998 indicated a growth of inbound tourism of In April 1998 3 % while domestic flows increased by 0,4 %. inbound tourism grow reached a peak and non-resident flows grew as much as 12,4 % compared to April 1997. EU tourism receipts grew by 8,9 % during the first six months of 1998 compared to 1997 (Eurostat, Statistics in Focus, Tourism 05/1999). (9) See in particular, Joint employment report 1998, adopted by the Council on 3 December 1998; Employment rates report 1998, COM(1998) 572. (10) For pratical information on GATS, see: European Commission, GATS 2000 - opening markets for servicesí, Luxembourg, 1998. 23. 6. 1999 EN Official Journal of the European Communities C 178/7 tourism activities and increase inward direct foreign investment as part of their efforts to promote economic growth. The Commission is currently in the process of developing an inventory of priority countries and market access barriers which should be dismantled. At is necessary to generate and maintain the broad support for an open world economy that has enabled rapid growth in so many parts of the world in recent decades. In this respect, the further liberalisation of tourism and travel-related services has an important role to play. same time, the it The favourable combination of demand driven oppor- tunities and of structural conditions in the European tourism industry could encourage Member States: - to focus on horizontal actions relevant to tourism in the National to be taken under the measures Employment Action Plans (NAPs); - to include specific boosting people and particularly women. entrepreneurship tourism related measures young potential in fully considered in all While tourism could be regarded as a partner ideally placed to contribute to this process, its contribution to employment has rarely been fully explored or its dimensions. This is all the more unfortunate in that tourism has the merit of being spread over a wide range of economic activities in every region of Europe and involves a substantial investment in human capital. The fact that tourism is a frag- mented industry made up of a large number of small busi- nesses and does not therefore benefit from a clear sectoral identity goes to be some way to explain why it neglected as an employment creator. tends There are several reasons why tourism could be an effective partner in the development of a European employment policy, namely: - the favourable current and forecast prospects for growth in tourist demand, encouraging the development of new busi- nesses, new products and services, and new jobs, notably in relation to the integration of environmental concerns into toursim development practices; - the nature and structure of tourism businesses, their wider- spread presence throughout Europe, the easy access to the market for newcomers, and the prospects for creating new niche markets, encouraging new business activity; - the fact that tourism is part of the next round of services negotiations in the year 2000, which should extend liberali- sation world-wide, creating new trade and investment opportunities; - the wide range of activities which come together to satisfy tourist consumption are an integral part of the economic, social and administrative fabric at local, national and European levels; - the flexible work environment in tourism services facili- tating the access of young people and particularly women to the labour market, and the opportunity for ensuring continuous training. 4. REINFORCING SYNERGIES TO BETTER EXPLOIT EU OPPOR- TUNITIES a already makes The European Community substantial contribution to tourism development in the Member States under a wide range of programmes and initiatives undertaken in many policy areas (11). In budgetary terms, this contribution is most evident through the structural funds with 4,7 billion euro provided via the ERDF for the programming period 1994-1999 (12). This is a clear sign of the importance of tourism as a driving force in economic activity in many areas across the Community, including rural areas and those In order to ensure optimum affected by industrial decline. results from the substantial funding provided, it is essential to ensure the integration of sustainable tourism strategies into a wider economic development perspective. for This process could be helped by a coherent Community consultation and cooperation in tourism framework for of and the allowing information and best-practice. The aim should be to assure an in and programming methods for the plans to be drawn up by Member States for the period 2000-2006 (13). dissemination identification partnership, integrated approach notably In some respects certain recommendations in the HLG report anticipate recent developments in important Community policy in the fifth RTD framework programme areas, for example, (11) Report from the Commission to the Council on Community measures affecting tourism (1995/96), COM(97) 332 of 2. 7. 1997. funds in (12) For an overview about the implementation of structural report on Structural Funds see ninth Annual regulations, 1997, OPOCE, 1999. (13) See in particular The structural funds and their coordination with the cohesion fund - Draft Guidance for programmes in the period the Commission SEC(1999) 103 of 3. 2. 1999. See also, Cardiff II report on structural reforms, COM(1999) 61. 2000-2006í, Working paper of C 178/8 EN Official Journal of the European Communities 23. 6. 1999 which identifies tourism as an eligible sector (14) Tourism busi- nesses and activities are undergoing an important structural change in the way tourism products and services will be produced, distributed, aggregated/marketed and sold. The information society will offer the opportunity to the tourist industry to further network and increase its competitiveness through making known more widely the tourist offer, and by providing an additional tool for better management based on more rapid receipt and processing of essential market and support information. New important opportunities. The chal- lenges and opportunities for the integration of information society facilities have an even greater relevance for tourism SMEs. The incorporation of IST tools into their working methods, early investment in the necessary equipment and in better training will lead to more and better jobs, higher profit- ability, and more opportunities for the exploitation of niche markets. Other Community policy areas of importance to the further development of a sustainable tourism in Europe are already under review, such as the fifth Environment programme (15). reforms the European The recent agreement on AGENDA 2000 at in addition to establishing a new financial Council (16), of includes policy framework, in a number for important areas which will create new opportunities tourism in the achievement of exploiting the potential of major Community objectives. Among these are the new arrangements for the Structural Funds, including Community initiatives and innovative actions, the Cohesion Fund, as well as the reform of the Common Agricultural Policy which brings an in which the increased emphasis on rural development Community Initiative, LEADER, and other possibilities for diversification in agriculture will have an essential role. Furthermore, contribute significantly to maintaining the cultural and natural landscape as well as the biodivierstiy and habitats that make Eruope’s rural areas attractive to tourists. In the context also of AGENDA 2000 tourism could make an important contribution to a succesful enlargement; judicious use of Community instruments available in the case of the candidate countries sustainable agriculture can could lead to further growth and development of their tourist industries on the basis of sustainability and quality. The devel- opment in those countries of tourist services in accordance with the concerns of the local population and the integration of environmental principles will incerase their attractiveness for thereby generating increased tourists from the Community, revenues and could therefore help to increase contacts and develop relationships between our respective peoples. and investment, visible evidence of stimulate further Important opportunities for tourism will arise also with the the same time, introduction of the single currency. At tourism will provide the practical advantages flowing from the introduction of the euro which will lead to greater price transparency and savings for tourists. intra-European The single currency will tourist flows and visitors from third countries to Europe, notably by providing an additional means of promotion of Europe as a tourist destination. that a large number of European consumers are likely to have their frist real contact with the euro during their holidays. In this context, the Commission Communication on the information strategy for the euro referred to tourism as a particularly interesting sector for the introduction of the euro and indicated that busi- nesses operating in this area can very usefully contribute to the the information on the practical and specific aspects of tourism euro (17). As potential the operators have also to prepare themselves the single currency earlier than other sectors, and the Commission will remain attentive to ensuring that the industry is fully prepared for the smooth take up of the euro (18). first users of euro, for is evident It in the field of Likewise in the development of actions commerce with which tourism remains closely linked, the Commission will seek to ensure maximum synergies in the measures to be taken (19). (14) Decision No 182/1999/EC of the Eruopean Parliament and of the Council (OJ L 26, 1. 2. 1999, p. 1). (15) According to the fifth EAP and the progress report and action plan of 1997, the following priority actions are indicated: - integration of environmental considerations right from the start into tourism policy at the most appropriate level, integrated land-use planning, stricter control measures on land-use; - a framework for protection of sensitive areas as desired by Member States, in particular for sensitive areas in the Medi- terranean, Baltic, the Alps and coastal zones; - information for tourists, involving better information on the state of the environment, promotion of new forms of tourism which care for the environment, careful selection of accommodation, awareness building etc. ; - management of toruists’ flows to respect the carrying capacity of tourist sites and implementation of appropriate measures to manage tourist flows to the lasting benefit of the sector and the environment. (16) European Council Berlin, 24/25 March 1999, Presidency conclusions SN 100/99. tourism requirements integration of policies, Many operational recommendations put forward in the report the High Level Group could be implemented by more of in existing effective Community The programmes following indications illustrate how the recommendations put forward by the Group could be followed up on the basis of the opportunities provided by Community instruments They are regrouped by main domain of activity and in relation to the type of action involved. initiatives. and (17) Commission Communication on the information strategy on the euro, COM(1998) 39 of 23. 1. 1998. (18) Within this framework the Commission has carried out the work of an industry-based áworking party on the euro and tourismí, and a European conference involving representatives of the major payment schemes. (19) For example, the Commission recently adopted a White Paper on Commerce which includes actions on commerce and tourism, COM(1999) 6 final of 27. 1. 1999 23. 6. 1999 EN Official Journal of the European Communities C 178/9 4. 1. Improving the competitiveness of European tourism through innovative information tools benchmarking methodology as an instrument for improving the competitiveness of European tourism. establishment of The an on-line European Observatory Network on Tourism ( EurONeTí) could contribute to fulfilling the existing gap in knowledge on tourism at the European level by linking together proven sources of information through exploiting facilities provided by new technologies. Designed to be a áone-stop-information-shopí this system could become a unique user-friendly support for decision-takers in tourism. structure, demography In relation to quantitative information - on tourist markets, on business employment trends, on environment indicators - the system could benefit from the progressive development of information from existing European statistical systems and from national tourism organisations wishing to be part of the network. performance, and In relation to qualitative information, the system could cover directly and via links with existing relevant EU information systems, specific sections on: Best-practices and innovative processes 4. 2. Tourism in EU enterprise policy networks The enhancement of the role and the improvement of the performance of EU enterprise policy networks such as Euro Info Centresí, (EICs), already well established throughout Europe and in some partner countries would contribute to improving the business environment and facilitate the access and use of opportunities provided by the Community. Over and above the issue of the network giving easier access to information and EU programmes, they also have a network effect by working together and giving information on local market conditions and opportunities. In areas particularly concerned by tourism development, the Commission could investigate the willingness of to develop targeted services of assistance for tourism businesses and public authorities. This can be explored during the networks promotion campaign currently run by the Commission Services, primarily in the Member States. This could lead to the identification, on an experimental basis, of Tourism Advisory experts in the EIC host organisations in the Member States. the partner networks - start-up of business, planning, management and marketing; tourism product development, This initiative could possibly be developed under the existing and future Multiannual Programme on SMEs. - information technology applications and facilities; - the integration of sustainable development principles and environmental including labelling and techniques, management systems; - training and human resources management. Community programmes and initiatives relevant for tourism - regulatory measures; - financial support measures. Research and documentation institutes in tourism Studies undertaken at the Community level in relation to tourism regularly The information made available by the system, up-dated, would be the basis for the preparation of a report on the competitiveness of European tourism, as recommended by the High Level Group. This report could be of support to public authorities, the tourism industry and other interested parties for setting up measures which integrate the use of 4. 3. Employment, labour market conditions and training in tourism The development of regulatory provisions and of supporting instruments designed to meet the need for a more employment from which tourism could benefit friendly environment concerns in particular: taxation, labour-market transparency, transnational recognition of qualifications and training, social dialogue between tourism industry partners. the since 1993 (20) European In relation to taxation, Commission has drawn the attention of the Member States to the need to reduce the tax burden on labour. The Commission has recently presented to the Council a proposal for a Directive allowing those Member States which so wish to apply a reduced VAT rate on certain labour-intensive services for an experimental period (21). The services concerned must satisfy specific requirements. Insofar as tourism services would meet from the experiment. This measure should contribute to exploiting the large potential for job creation in businesses offering local services, and could also help to reintegrate into the tax they might also benefit these conditions, (20) White Paper on Growth, Competitiveness, Employment, December 1993 - Chapter IX. (21) Proposal of Council Directive COM(1999) 62 of 17. 2. 1999. C 178/10 EN Official Journal of the European Communities 23. 6. 1999 system some businesses which have drifted into the black economy. The increasing awareness of the need for greater in line with the coordination between Member States concerns and this approach may continue to be promoted by the Commission. is tourism industry, expressed by the In order to improve labour market transparency and greater training and work experiences in recognition of education, tourism at in accordance with decisions already taken, promote in particular: the Commission could, the Euopean level, - more extensive use of the Eruopean employment network (EURES) and the provision of targeted assistance to tourism businesses and job-seekers which could facilitate the matching between demand and supply of tourism jobs, and improve workers mobility; - full implementation of the Directives for mutual recog- acquired in EU nition of professional qualifications Member States, and implementation of the Commission’s initiative on the adoption of the EUROPASS Trainingí. This could promote mobility in work-linked training, including apprenticeship, allow for greater tansparency and visibility to qualifications and experience acquired during work-linked training abroad (22). and will - more effective use, Employabilityí, framework for in tourism-related activities, of the European Social Fund, as the main EU financial tool for developing human resources and improving the functioning In the forthcoming programming of the labour market. period (2000-2006) the general objective of the ESF will be to prevent and combat unemployment and to develop human resources in order to promote a high level of employment. The National Action Plan for Employment (NAP), as required by the Eruopean Employment Strategy, with their priorities Entrepreneurshipí, Adaptabilityí and Equal opportunitiesí will serve as the overall the ESF measures mainly to promote active labour market policies and to improve the access to the labour market. In the case of structures and systems, while respecting the competition rules, incentives could be provided to improve the quality of training and the efficiency of employment services, to develop closer links between the world of work and education and training institutes, to foster systems for forward planning and for anticipating changing employment and skills needs, in particular in the case of new forms of work organistion. This will be an important element in creating sustained employment in tourism, as it will enhance the attractiveness of in tourism and ensure high quality services. Furthermore, the capacity of tourism for integrating unem- jobs jobs could be better ployed people in a wide range of exploited through greater in training at different levels of qualification, and through measures for the up-grading of the expanding needs of the industry. to better meet investments in order skills In the field of transnational cooperation in education and training, the results of ongoing evaluation of the results achieved within the Leonardo da Vincií programme could be taken into account for improving access tourism-related activities in the implementation of the next phase of the (2000-2006), due to be adopted by the programme, Council and by the European Parliament during 1999. - moreover, the Guidelines for the Structural Funds in the period 2000-2006 (23) recommend that Structural Funds plans should consider áupgrading skills and professional profiles in order to respond better to the expectations of tourists and the needs of the industryí. The improvement of consultation and dialogue between the social partners in tourism, could continue to be a key priority in the Commission’s work. An important contribution from the social dialogue process has been given by the recent framework agreement on fixed term work, which has a direct impact on seasonal activities, such as tourism. Building on the progress made in this repect (Hotel and Restaurant sector) and while promoting further developments in this sector, the Commission could investigate the willingness of other branches of tourism to launch a similar platform of dialogue at the European level (24). in the Horecaí 4. 4. Tourism related infrastructures The positive impact on tourism flows of the liberalisation process in transport which has been boosted by Community initiatives will require continual efforts to ensure more efficient and sustainable infrastructures. Further advantages could be traffic de-congestion through gained, ensuring a greater systems, transport notably in tourist destinations. inter-operability of in terms of inter alia, The Commission is conscious of the increasing impact of efficient transport and new technology infrastructures on the It has recognised the competitiveness of European tourism. to need for measures designed to meet concerns similar (22) Council Decision 1999/51/EC (OJ L 17 of 22. 1. 1999, p. 45). (23) SEK(1999) 103 final of 3. 2. 1999. (24) COM(1998) 322 of 20. 5. 1998. 23. 6. 1999 EN Official Journal of the European Communities C 178/11 those expressed by the HLG, under the guidelines adopted for the future programming period of the Structural Funds, and in implementing measures under way following the recent adoption of the fifth RTD Framework Programme. In particular, tourism will benefit from the implementation of actions planned under the fifth RTD programme designed to contribute to the emergence of high quality, personalised services for European citizens, and to develop innovative tech- nological applications and standardisation measures will enable the tourist industry, especially SMEs, to invest in information and teleommunication system solutions. The outcome of the projects should contribute essentially to the competitiveness of the European tourism industry. To define targeted specific research actions the Commission is seeking the views of the tourism industry concerning their real research needs. For this purpose a web site has been set up with the aim of inviting experts in the area of tourism and IT to participate in a virtual discussion forum. This will also give the opportunity to promote information society technologies In addition to the discussion forum, a database with key players in tourism and IST (including the private and the public sector) will be set up, which could be used as a means to identify partners to exchange best practices or to develop joint ventures with regard to business or projects. The fifth Community framework programme will provide a particular opportunity for the integration of cultural heritage into the urban setting. By enhancing the opportunities opened by cultural heritage for tourism, the aim will be to develop tools, methodologies and models which would assist decisionmakes on issues linked to accessibility and sustainability, and to exploitation of cultural heritage. in tourism. Sustainable transport has a fundamental role in promoting growth and employment in the tourism industry. European infrastructure, particularly in economically under- transport developed and in peripheral regions, has benefited from substantial investments by the European Structural Funds (notably the European Regional Development Fund (ERDF)) and the Cohesion Fund. The ERDF has allocated 13,7 billion euro to transport investment in less-developed regions over the period 1994-1999 and the Choesion Fund has allocated more than 5 billion euro between 1993 and 1999 for the devel- opment of key trans-European transport links. Implementation by the Member States of the Trans-European Transport Networkí initiative and on-going discussions on the establishment of a European air traffic control system will continue to be encouraged. Furthermore, the Commission could support efforts to be undertaken by Member States and their regions with a view to additional or improved infrastructure providing attractive environ- public transport mentally-friendly access located in good reach from the main railway links. Major achievements in developing transport infrastructures at the international level to tourist destinations level the regional liberalisation of in various Member States, have and at directly contributed to facilitating access to traditional tourist destinations and created new opportunities in other areas. The completion of the European air transport market has provided tourism transport with new opportunities, whilst maintaining and enhancing employment prospects in the air transport sector. It is particularly important for the success of the tourism industry to match the forecast growth in European air traffic with sustainable and congestion-free travel. The Commission could encourage also greater consultation and cooperation among the parties concerned (tour operators and travel agencies, airport and public authorities in main tourist destinations, airline companies) in order to reduce the pressures generated by tourist flows in peak-season and at peak-times. 4. 5. Sustainable development and quality standards The Commission is already committed to encouraging and integration of environmental concerns supporting the full into tourism development planning and practices, including the use of indicators for sustainable tourism and the integration of environmental criteria into management practices of tourism enterprises and schemes for tourism destinations. Building on the results of the wide range of actions undertaken in this area as part of its sustainable development strategy, and, with a view to mainstreaming this approach throughout all especially Community introduce environmentally encourage initiatives which will friendly practices including instruments and schemes for identification and dissemination of best practice. in tourism, notably by SMEs Commission may policies, the Trans-European impact assessment of tourism Regarding the environmental projects, the Commission pays full attention to the correct implementation by Member States of the relevant provisions of the European Community legislation and urges the respect of a similar approach in EU partner countries. In the context of the Cooperation the Community Structural Funds, the Commission could inves- tigate the feasibility and the interest of relevant authorities in the Member States in launching a revitalisation programme for tourist destinations in decline and affected by mass tourism, and by the degradation of environmental assests arising from ill-conceived tourism investments in the past. Preliminary work in that context has been initiated in 1999. Initiative under Relevant information on carrying capacities in urban tourist destinations will be provided by the recently launched (Agenda for Research on Tourism by Inte- ARTIST project C 178/12 EN Official Journal of the European Communities 23. 6. 1999 gration of Statistics and Stragies for Transport), financed under the Transport RTD Programmeí of the Community’s Research and Development Framework Programme. the Community research project on transport and tourism and its key objectives include analysing and reviewing existing visitor management practices, especially in European cities with large tourism flows. It will be carried out over the next 12 months, followed by dissemination of the results. is one of It Attention should also be paid to sustainable development of tourism in rural areas. The Commission Communication on Directions towards sustainable agricultureí (25) underlines the potential of tourism to achieving diversification of economic activities, in particular where the agriculture sector is declining. Such a development requires a sustainable and integrated approach to meet the tourists demand for quality, to improve benefits for local businesses and communities and to preserve the natural heritage (landscape and biodiversity) as well as the cultural heritage (architecture, handicrafts and traditions). and actions existing The low level of use and dissemination of quality management techniques and strategies are major weaknesses affecting the competitiveness of the tourist industry. In relation to enter- prises, developed on a voluntary basis within the framework of the quality policy supported by the Commission can provide and intiatives valuable means for addressing this issue. The wide dissemi- nation and implementation of specific studies undertaken by the European Commission in relation to inte- grated quality management in coastal, urban and rural tourist destinations, will encourage further progress in this area. results of schemes 5. ENSURING THE EFFECTIVENESS OF COOPERATION the HLG. Implementation of many of The indications given above have identified measures which could be envisaged by way of an initial response to the recom- mendations of these measures will allow tourism to play its role in the attainment important Community policy objectives. However, past of experience, including evaluation of Community measures relating to tourism has shown a serious risk of overlapping and redundancy, which tends to diminish the effectivenees of the efforts of the Community and of Member States. Such risks could be substantially eliminated through a strategy framework which would ensure more coherence and greater transparency at all levels. This would help to: - better determine policy priorities; - bring greater contribution European tourism; to cost-effectiveness improving the to the Community of competitiveness (25) Communication on sustainable agriculture, Com(1999) 22 of 27. 1. 1999. - facilitate the identification and the removal of barriers to tourism development. The successful exercise of the present mandate, under which the relevant Service of the Commission responsible for tourism is charged with the task of coordination of all Community measures affecting tourism, must overcome a number of chal- lenges. Among these are: - the wide scope of the actions concerned, not all of which can be readily identified by the Commission services as having an impact on tourism (for example in national or regional programmes of tourism development); - rapid developments in the market, which require a constant flow of quality information to the Commission Services; - the need to focus on relevant issues in integrating common tourism concerns into Community instruments; - the ability to communicate information on Community initiatives to qualified interested parties and to raise their awareness and involvement; essential - the difficulty in making the case for exploiting the potential of tourism in a situation of uncertainty as regards its place in Community priorities. other under policies instruments, information, cooperation, of measures relevant Community These challenges require that the Commission’s administrative structure charged with responsibility for tourism should focus more on the and partnership functions, leaving pilot actions, where appropriate, to initiatives and taken programmes. Such initiatives could be encouraged, under the implementation horizontal Community in particular on employment, education and training, enterprise policy, Research and Devel- opment policy, environment and statistics. is essential, however, that the integration of priority tourism issues into other Community policies and programmes should not be undermined by the absence of good advice and expertise; this problem could be avoided through the implementation the specific tools mentioned in chapter 2, designed to of ensure that high quality, up-to-date information, is made available in a systematic way. planned under It 6. CONCLUDING REMARKS The expectations that the report of the High Level Group has created at the level of the European Institutions, the Member States and the industry emphasise the need for ensuring an effective Community contribution to the development of European tourism. 23. 6. 1999 EN Official Journal of the European Communities C 178/13 A more effective approach at Community level will require, on the one hand, simplification of rationalisation of means, procedures, and consolidation and assessment of achievements, and on the other hand better consultation, cooperation and partnership. the elements forming part of Most of that approach are common to the Community’s strategy on tourism in the context of In that context, as regards developing countries, the Council of (Devel- opment) Ministers (26) has recently fully endorsed the European Community strategy proposed by the Commission. cooperation with partner countries. the Despite the clear analysis showing the economic and social impact and potential of tourism, together with its increasing internationalisation, lack of a shared vision among European countries on tourism development, and the absence of political recognition for the role and place of tourism in Europe’s construction makes for lost opportunities in terms of exploiting the potential of the sector. This is all the more unfortunate having regard to the increasing interest shown by EU candidate and partner countries in EU guidance and assistance in tourism, and the process of convergence and cooperation being established with these countries in the field of tourism. This situation underlines the need for a clear vision of the conditions under which the players at all levels in European tourism can make a worthwhile input to facilitating sustainable development of the industry, including SMEs, through partnership and cooperation, and an indication of what the Community can bring to that process. In its concluding remarks the High Level Group sets out the arguments and outlines the conditions which would allow tourism to achieve recognition European tourism deserves as a leading playerí. the The need now is for the development of an innovative strategy for ensuring that all the stake holders, whatever their level of responsibility, will respective contributions through a system which would allow for open discussion on common objectives, the exchange of knowledge, encouragement of innovation, and greater transparency and quality in planning and legislation. to make their able be The foregoing analysis underlines: - the appropriateness of the conclusions of the High Level Group in relation to the conditions for maximising the contribution of tourism to growth and employment, and to sustainable devel- the Group’s opment, conclusions, and to include them in national strategies, where appropriate, in accordance with their tourism policy priorities; the importance for Member States to continue the examination of - the need for improved framewok at Community level bringing greater effectiveness to Community actions in the field of tourism. It will be for the future Commission to consider the opportunity to examine progress made towards the implementation of the High Level Group’s conclusions and recommendations on the occasion of the First European Summit on Tourism in the year 2000. (26) Communication from the Commission to the Council and the Eruopean Parliament on a European Community strategy to support the development of sustainable tourism in the developing countries, COM(1998) 563 of 14. 10. 1998, and conclusions of the (Development) Council of 30 November 1998, (PV13536/98 of 13 January 1999, Annex II)