EN EN

EUROPEAN COMMISSION

Brussels, 4.11.2026 COM(2026) 777 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

EU Sustainable Tourism Strategy

{SWD(2026) 777 final}

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Tourism: a strategic asset for Europe’s competitiveness,

sustainability and resilience Tourism brings immense value to Europe, its economy and its cultural and social wealth. It

sustains growth, employment, productivity, innovation and territorial development at national,

regional and local levels1. Travelling in Europe embodies freedom of movement, cultural and

natural diversity, safety and authenticity. The EU is the world’s leading tourism destination. In

2025, it welcomed close to 600 million international tourists, representing almost 40% of all

international tourist arrivals globally2. This leading position reflects the appeal of the European

way of life, with tourism as its most immediate and tangible expression.

In 2025, tourism directly contributed 4.1% to the total EU gross value added, representing as

much as 10.1% when considering the indirect and induced effects of tourism expenditure3.

Across the EU, the sector employs more than 20 million people and comprises around 5 million

companies, 99% of which are SMEs and 96% are microenterprises4. Tourism is also a key

export sector, accounting for 11% of total EU services exports5. It generates extensive spillover

effects across a wide range of sectors, including transport, construction, retail and agriculture,

amplifying its economic contribution. Tourism investment can catalyse public and private

infrastructure development and improve services that benefit visitors and residents alike6.

Tourism fulfils an important social function for Europe by connecting people. By bringing

economic activity and jobs directly to peripheral, disadvantaged and rural areas, tourism also

helps people live and work within their community, making the freedom to stay a reality7. For

islands, coastal, mountainous and outermost regions in particular, tourism plays a critical role

for local economies and social cohesion. Tourism is also an important vehicle for Europe’s

global influence and soft diplomacy, shaping how the EU is perceived worldwide as a

destination and as a model for sustainable and inclusive development. At the same time, the

sector is significantly affected by geopolitical instability and shocks, particularly in the eastern

border regions (by land and sea)8 due to Russia’s war of aggression against Ukraine and in

Member States impacted by the conflict in the Middle East9. Nevertheless, Europe remains an

open, safe and welcoming destination for all travellers.

1 Tourism represents a wider ecosystem of interconnected activities and industries. In this Strategy, ‘tourism

ecosystem’ refers to this wider interconnected system, while ‘tourism sector’ is used when referring to tourism

businesses and industry. 2 World Tourism Organization (UN Tourism), ‘World Tourism Barometer, Volume 24, Issue 2, Statistical Annex’,

May 2026. 3 EU Tourism Dashboard, ‘Economic contribution of tourism’, accessed November 2026. 4 European Commission, ‘European Monitor of Industrial Ecosystems’, accessed November 2026; EU Tourism

Dashboard, ‘Tourism Enterprises by Size (%)’, accessed November 2026. 5 Eurostat, ‘International Trade in Services (since 2010)’, accessed November 2026 6 OECD, ‘OECD Tourism Trends and Policies 2026’, OECD Publishing, Paris, 2026. 7 Enrico Letta, Much More than a Market – Speed, Security, Solidarity: Empowering the Single Market to Deliver

a Sustainable Future and Prosperity for All EU Citizens, Report to the European Council, April 2024, p. 15;

European Commission, ‘Right to Stay Strategy – Your Region, Your Future’, accessed November 2026. 8 The EU’s land and sea border with Russia, Belarus and Ukraine runs along regions in nine Member States

(Finland, Estonia, Latvia, Lithuania, Poland, Slovakia, Hungary, Romania, and Bulgaria) as defined in European

Commission, ‘Communication on the EU’s Eastern Regions Bordering Russia, Belarus and Ukraine: Strong

Regions for a Safe Europe’, COM(2026) 82 final. 9 European Council Conclusions, 19 March 2026. en-20260319-european-council-conclusions.pdf.

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Looking ahead, international arrivals worldwide are forecast to reach 2 billion by 2030,

compared to 1.5 billion in 202510. This continued growth creates further opportunities for EU

tourism to foster growth, employment, innovation and social wealth. At the same time, visitor

flows need to be managed effectively, for the benefit of both tourists and residents.

The European Parliament, Council as well as other institutional actors11, and stakeholders12,

have called for a stronger and better coordinated EU-level policy response to the common

challenges EU tourism is facing. This Strategy aims to deliver on this call, while building upon

already solid EU policy foundations. The collaborative 2022 Tourism Transition Pathway13

and the Council’s European Agenda for Tourism 203014 have set a common course that is now

taken forward.

This Strategy sets out a vision for an EU tourism ecosystem built on sustainability and

innovation. It promotes competitiveness, resilience and inclusiveness, with the aim of

unlocking productivity and inclusive growth.It seeks to consolidate Europe’s position as the

world’s leading tourism destination, offering authentic, seamless and high-quality experiences

that celebrate and protect its rich cultural heritage and biodiversity, for today’s visitors and

future generations.

Strategic goals

(i) Strengthen competitiveness of the sector: support the European business ecosystem.

(ii) Promote Destination Europe: reinforce Europe’s position as a leading global tourism

destination.

(iii) Promote sustainable, balanced and accessible tourism: spread the benefits of tourism across

regions and seasons. Make travel affordable and inclusive for all.

(iv) Shift from volume to value: ensure tourism delivers tangible benefits for local

communities.

(v) Build a more resilient and accessible ecosystem: prepare the sector for future shocks.

(vi) Drive the clean and digital transitions: support the sector in adopting clean, circular and

innovative practices.

To unlock this vision, the Strategy sets out three pillars with 10 action areas with a strict

focus on where EU initiatives bring most tangible value while fully respecting national

competences, in line with Article 195 TFEU. The action areas are closely inter-connected, as

only together they will ensure the EU’s competitiveness, sustainability and resilience.

10 World Tourism Organization (UN Tourism), ‘50 Years of Tourism: Global Trends and Future Scenarios.

Briefing Paper for the 26th UN Tourism General Assembly’, UN Tourism, Madrid, November 2025. 11 Council of the European Union, ‘Building a Sustainable and Competitive Tourism for the Future – Council

Conclusions’, Council document 9075/26, May 2026; European Parliament, ‘Resolution of 28 April 2026 on

Enhancing Connectivity, Preserving Cultural Heritage, and Driving Local Excellence in European Tourism:

Destination Management and Regional Tourism Growth (2025/2120(INI))’, April 2026; European Economic and

Social Committee (EESC), ‘Tourism in the EU: Sustainability as a Driver for Long-Term Competitiveness’,

February 2026; European Committee of the Regions, ‘Towards Sustainable and Resilient Tourism in the European

Union: Strategy for Balanced and Adaptive Management’, December 2025. 12 European Commission, EU Sustainable Tourism Strategy, SWD°(2026)°777 final, November 2026. 13 European Commission, Directorate-General for Internal Market, Industry, Entrepreneurship and SMEs,

‘Transition Pathway for Tourism’, Publications Office of the European Union, February 2022. 14 Council of the European Union, ‘European Agenda for Tourism 2030 – Council Conclusions’, Council

document 15441/22, December 2022.

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1 Boosting the competitiveness of EU tourism Strengthening the tourism sector’s competitiveness propels tourism destinations and

businesses, in particular SMEs. Better access to data, less administrative burden, a skilled

workforce and improved connectivity are essential for tourism to keep innovating and

delivering on its development potential for regions and local communities.

1.1 Enabling SMEs to thrive: collaboration, simplification and growth

SMEs are the backbone of Europe's tourism ecosystem and its competitiveness. Tourism SMEs

are major employers for women and young people, especially in rural, coastal and mountain

areas as well as islands, where jobs are scarce. They also keep tourism income circulating

locally through regional supply chains, with significant spillover effects to other local sectors.

These SMEs also deliver authentic experiences that define Europe's appeal.

Tourism value is created by the destination as a whole, not only by individual businesses.

However, SMEs too often operate in isolation with limited productivity gains, while larger

players such as hotel groups, transport and tour operators, and booking platforms control

capital, data and technology. Therefore, as a common thread for this Strategy, the Commission

encourages partnerships between SMEs and large companies operating in the tourism

ecosystem by the actions envisaged in this Strategy. This way, scale, innovation and local

authenticity reinforce each other to the benefit of destinations and the wider tourism ecosystem.

To enhance the competitiveness of SMEs in the tourism sector, the Commission will support

them in applying relevant EU legislation and making use of available tools related to the clean

and digital transitions, and climate action. Tourism SMEs will receive technical assistance,

training and capacity-building to facilitate their transition. Regional and local economies

that are dependent on tourism are especially sensitive to climatic changes15. As the climate

changes, so do travel patterns and conditions. To adapt to this shift towards a new geography

of tourism, prevention, preparedness and foresight are essential, in particular for SMEs. To this

end, the Commission will develop practical and easily accessible tools for tourism SMEs and

destinations to better prepare and adapt to climate change.

A clear and simple regulatory environmentis also a key foundation for tourism businesses to

remain competitive. The Commission will launch an EU Simplification Initiative for tourism

involving Member States and tourism stakeholders for focused exchanges feeding into the

existing Commission Simplification Platform16. The objective will be to gather real-life and

quantitative evidence of administrative burden faced by tourism businesses and destinations.

Barriers may stem from EU rules but also from implementation issues and gold-plating17. The

results may lead to recommendations for actions to further simplify EU rules for the tourism

sector, in line with the Commission’s better regulation agenda.

This initiative will intensify work to already ongoing simplification measures for the sector.

Before the end of 2026, the Commission will present a proposal to modernise VAT rules that

apply to the travel and tourism sector. This will bring them up to date with travel trends,

digitalisation and the global context. It is expected that the reform will enhance the

15 European Environment Agency, ‘European Climate Risk Assessment’, EEA Report 01/2024, Publications

Office of the European Union, March 2024. 16 European Commission, ‘Simplification Platform’, accessed November 2026. 17 Gold-plating: when transposing EU directives into national law, Member States introduce national rules or

requirements that go beyond what is required by the legislation.

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competitiveness of EU travel operators and the level playing field within the EU, while

simplifying compliance for passenger transport providers, especially SMEs18.

Additionally, the Commission will in close consultation with Member States and stakeholders

evaluate current frameworks and propose options and recommendations to improve

comparability of accommodation classification systems and gradually explore including

other certification systems such as information on accessibility and environmental

performance.Systems vary significantly across Member States and regions, leading to

confusion for visitors and to an uneven playing field for accommodation providers, especially

SMEs operating across borders.

Action area 1: The Commission will

- launch an EU Simplification Initiative for tourism by 2027, to gather practical

evidence of the administrative burden faced by the tourism sector and destinations,

- present by the end of 2026 a proposal to revise and modernise VAT rules applying to

the travel and tourism sector, and

- launch focused support to tourism SMEs for their clean/digital transitions by 2027.

1.2 Data, digitalisation and innovation

Data, digitalisation and innovation are key to EU tourism competitiveness. Access to, use and

secure exchange of data is essential to help destinations and businesses adapt to changes of

traveller behaviour and market conditions while enabling informed decisions. However, these

opportunities can only be fully seized in a fair digital environment, where market power does

not translate into unfair commercial dependency. Online booking platforms must therefore

operate with transparent commercial practices, effective contestability and fairness. This is

essential for Europe's tourism ecosystem, which is largely made up of SMEs, and for a

competitive, transparent distribution environment that supports consumer choice, innovation

and resilience. The Digital Markets Act19 and the Digital Services Act20 provide the cross-

cutting framework for this, and their effective and consistent enforcement is key to protecting

the independence of tourism businesses and guaranteeing real choice for consumers.

To ensure access to high-quality, reliable data for destination management organisations

(DMOs), businesses, individuals and policymakers at all governance levels, it is of utmost

importance to fully deploy the Common European Tourism Data Space21. Further work on

the Common European Tourism Data Space is needed to ensure strong operational links with

other European sectoral data spaces and relevant data models22. The Commission calls on

Member States to strengthen stakeholders’ awareness of the purpose and benefits of data

sharing and of the Common European Tourism Data Space.

Also, European official statistics continue to play an important role in providing data for public

and private actors. Therefore, the Commission will present a proposal to modernise

Regulation (EU) 692/2011 concerning European statistics on tourism. Its aim is to provide

18 European Commission, ‘VAT Package for Travel and Tourism’, accessed November 2026. 19 European Parliament and Council of the European Union, Regulation (EU) 2022/1925 of the European

Parliament and of the Council of 14 September 2022 on contestable and fair markets in the digital sector and

amending Directives (EU) 2019/1937 and (EU) 2020/1828 (Digital Markets Act) 20 European Parliament and Council of the European Union, Regulation (EU) 2022/2065 of the European

Parliament and of the Council of 19 October 2022 on a Single Market for Digital Services and amending

Directive 2000/31/EC (Digital Services Act), 21 European Commission, ‘Towards a Common European Tourism Data Space: Boosting Data Sharing and

Innovation across the Tourism Ecosystem’, COM(2023) 478 final, July 2023. 22 European Commission, ‘Cultural Heritage Cloud’, Research and Innovation, accessed November 2026.

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more complete, granular, timely and cost-efficient official statistics on tourism23.

Complementing official statistics, the EU Tourism Dashboard24 is an established online

knowledge tool, providing meaningful visualisations of tourism-relevant indicators, helping

identify issues and facilitate policy initiatives. The Commission will further develop the

Dashboard’s analytical capabilities. To this end, the Commission will set up an EU Tourism

Observatory to monitor developments across the sector, analyse important trends and provide

insights for EU and national policies. One of the deliverables will be developing a common

performance framework for the sector.

Data driven artificial intelligence (AI) is playing a pivotal role in reshaping the sector,

affecting almost every aspect of the travel and tourism experience, including supporting more

individualised experiences, efficient information exchanges and enhanced destination

management. While AI solutions offer a strategic opportunity to strengthen the competitiveness

and digital presence of destinations and businesses, it is essential that Europe keeps control

over its data, narratives and value creation. The Commission will work with stakeholders on

embedding tourism into the EU Apply AI strategy25, to integrate best practices for the

responsible and safe uptake of AI in tourism, based on use cases. It will open training

opportunities through existing and upcoming EU initiatives, including the European Digital

Innovation Hubs.

The imminent roll-out of EU Digital Identity Wallets and the future introduction of EU

Business Wallets26 offer secure and easy-to-use identification tools, which are essential for a

seamless user-journey and simpler business processes. In particular, the EU Digital Identity

Wallets will provide a secure trust framework for identifying and authorising AI agents in

travel and tourism. With the traveller's consent, the agent would present the relevant credentials

from their EU Digital Identity Wallet at each step from booking to local activities. Businesses

would rely on AI agents authorised through their European Business Wallets, making clear

which company each agent represents and what it is allowed to do. TheCommission will

launch a pilot with public and private organisations testing the integration of agentic AI

in the Wallets through real-life use cases27.

Innovation is one of the main drivers of the competitiveness of EU tourism, which has

traditionally been at the forefront of technology development. The Climate Neutral and Smart

Cities Mission28 through its cohort of 112 cities, accounting for 12% of the EU population,

aims at reducing sharply by 2030 the emission of Green House Gases in several sectors like

energy, transport and waste, contributing thereby to more sustainable tourism. The European

Innovation Council supports innovative start-ups developing strategic technologies with

potential applications in the tourism sector, particularly in the fields of culture and creativity,

mobility and clean technology29. The European Regional Innovation Valleys initiative supports

interregional innovation in tourism30. Travel-tech startups are key drivers of innovation, but

23 European Commission, ‘European Tourism Statistics – Legislative Update’, Have Your Say, accessed

November 2026. 24 European Commission, EU Tourism Dashboard, accessed November 2026. 25 European Commission, ‘Apply AI’, Shaping Europe’s Digital Future, accessed November 2026. 26 European Commission, ‘What Are the Large-Scale Pilot Projects?’, EU Digital Identity Wallet, accessed

November 2026. 27 European Commission, ‘Pilot Projects: What Are the Large-Scale Pilots’, EU Digital Identity Wallet, accessed

November 2026. 28 European Commission, Climate Neutral and Smart Cities Mission, July 2025. 29 European Commission, ‘European Innovation Council’, accessed November 2026. 30 European Commission, ‘Regional Innovation Valleys’, accessed November 2026.

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face persistent barriers around early-stage finance, market access and real-world validation31.

Tourism-focused incubators and accelerators are in place across Member States, and the

Commission will facilitate greater synergies among them, including through matchmaking

events, to reduce fragmentation and facilitate cross-border scaling of innovative solutions,

reinforcing European sovereignity. In 2027, Horizon Europe will fund technologies supporting

sustainable cultural tourism through AI-driven visitor management, smarter low-carbon travel,

immersive digital heritage, multilingual cultural mediation, and improved accessibility32. This

will further support the competitiveness of the tourism sector, including via funding for

beneficiary SMEs.

Action area 2: The Commission will

- support Member States in deploying the Common European Tourism Data Space by

2029to ensure access to high-quality, reliable data,

- propose to modernise Regulation (EU) 692/2011 concerning European statistics on

tourism by 2027,

- establish an EU Tourism Observatory by 2027 to monitor developments across the

sector, analyse important trends and provide insights for EU policy, and

- facilitate greater synergies among tourism start-ups and with investors by 2027,

including through matchmaking events.

1.3 Skills and talent for tourism

To boost competitiveness and economic sustainability, EU tourism must become a destination

for talent, where skilled workers can thrive. Labour and skills shortages are significant

obstacles for EU tourism to flourish33, calling for integrated measures covering skills

(upskilling and reskilling), workforce mobility, housing availability and affordability, fair

working conditions, and improving the sector’s overall attractiveness. Progress has already

been made, but there are still significant skill gaps across Member States, regions and types of

tourism models (e.g. coastal, alpine, urban). 92% of SMEs in EU tourism find it challenging to

hire skilled staff, predominantly due to a shortage of applicants with the right skills34. DMOs

face comparable challenges in the training and staffing required to fulfil their mandate, which

spans the management of tourist flows and the delivery of memorable visitor experiences.

To provide the crucial training and talent development needed, the Commission will launch a

high-quality EU Tourism Academy that includes the possibility to provide digital micro-

credentials. The Academy will be supported by a network of national tourism institutes,

universities, vocational training institutes and other relevant stakeholders that will develop and

pool training content and learning programmes. It will be based on existing EU skills project

deliverables and industry input as well as on the large-scale partnership in tourism under the

EU Pact for Skills and the blueprint alliances for sectoral cooperation on skills in the tourism

sector35.

31 OECD, ‘Using Incubators and Accelerators to Support Travel and Tourism Start-ups’, OECD Tourism Papers,

No. 2026/01, OECD Publishing, Paris, August 2026. 32 European Commission, ‘Horizon Europe Cluster 2 Work Programme 2027: Future-proofing Sustainable

Cultural Tourism’, Horizon Europe Work Programme 2026–2027, pp. 116–120, accessed November 2026. 33 Eurostat, ‘Job Vacancy Rate by NACE Rev. 2.1 Activity – Annual Data’, accessed November 2026. 34 European Commission, ‘Jobs and Skills in Tourism’, Directorate-General for Mobility and Transport, accessed

November 2026; OECD, ‘OECD Tourism Trends and Policies 2026’, OECD Publishing, Paris, 2026, accessed

November 2026. 35 FUTOUR Alliance, ‘FUTOUR Alliance’, PACTS4ALL, accessed November 2026.

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The Academy will benefit from in-depth analysis of the tourism labour market provided by the

European Skills Intelligence Observatory36. The analysis will leverage skills forecast models

allowing for assessing occupational profiles and learning programmes matching most closely

emerging future needs. In addition, it is key that qualifications and their levels are understood

across Member States, for which the Commission recently proposed the Skills Portability

Initiative37, requiring Member States to issue interoperable and secure digital credentials for

qualifications and requiring comparable information on qualifications.

The Commission will publish a study on working conditions in tourism, also covering

collective bargaining, following consultations with all relevant stakeholders38. This will help

identify solutions to increase the attractiveness of tourism jobs in the EU for a diverse

workforce. This will include building on Social Dialogue frameworks, including launching

new dialogues related to tourism such as the Social Dialogue for the hotel, restaurant and

catering sector39. Following the adoption of the Fair Labour Mobility Package40 and the Quality

Jobs Roadmap41, by the end of 2026, the Commission will present a legislative proposal for

the Quality Jobs Act updating EU rules protecting workers while supporting productivity and

competitiveness.

To help the sector tackle labour shortages after having explored all possible options within the

EU, the Commission invites Member States to make full use of the possibilities provided under

the Seasonal Workers Directive42. The Commission is also invites Member States to

participate in the EU Talent Pool43 and the Talent Partnerships44. The Commission will also

exchange with Member States in relevant existing fora on best practices to address labour

shortages affecting the tourism sector.

Action area 3: The Commission will

- launch a high-quality EU Tourism Academy by 2027 to provide the crucial training

and talent development that the sector needs, and

- publish a study on working conditions in tourism by 2028.

1.4 Seamless and sustainable connectivity and infrastructures

The tourism sector’s competitiveness depends on seamless, safe and smooth mobility across

Europe, particularly important for islands, coastal, rural and remote areas. Enabling effective

and sustainable connectivity lies at the heart of the Single Market, with the implementation of

36 Galanakis, Y. and Vergote, W., ‘European Skills Intelligence Observatory – Mapping of Skills Intelligence in

the EU – Technical Report’, Publications Office of the European Union, 2026, accessed November 2026. 37 European Commission, ‘Skills Portability: Helping Skills and Qualifications Travel Across Borders’, accessed

November 2026. 38 The Commission initiative on ‘Assessing working conditions and identifying solutions to increase the

attractiveness of transport and tourism jobs in the European Union’ will produce country fiches, background

papers for workshops and culminate in a final conference and report planned for mid-2028. 39 European Commission, ‘Cross-Industry and Sectoral Social Dialogue’, accessed November 2026. 40 European Commission, ‘Fair Labour Mobility Package’, accessed November 2026. 41 European Commission, ‘Quality Jobs Roadmap’, COM(2025) 944 final, December 2025. 42 European Parliament and Council of the European Union, ‘Directive 2014/36/EU of the European Parliament

and of the Council of 26 February 2014 on the Conditions of Entry and Stay of Third-Country Nationals for the

Purpose of Employment as Seasonal Workers’, Official Journal of the European Union, March 2014. 43 European Commission, ‘EU Talent Pool’, Directorate-General for Migration and Home Affairs, accessed

November 2026. 44 European Commission, ‘Talent Partnerships’, Directorate-General for Migration and Home Affairs, accessed

November 2026.

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the TEN - T transport network45 and building and upgrade of tourism-relevant transport

infrastructures.

For certain transport modes such as aviation, travellers have had easy access to tickets for

decades. This is not the case for rail services and multimodal journeys. The Commission

proposals for a Regulation on Multimodal Booking, the Rail Ticketing Regulation and the

targeted revision of the Rail Passenger Rights Regulation (referred to as ‘the Passenger

Package’)46 will improve how online ticket distribution works, boosting consumer confidence,

demand for rail travel and the overall competitiveness of the sector.

During the consultation on this Strategy, most stakeholders highlighted high-speed rail as a

priority to improve sustainable connectivity. In 2025, the Commission adopted the High-

Speed Rail Action Plan47, which sets out steps to build a faster, more interoperable and better-

connected network, reduce journey times, and make rail a more attractive alternative to short-

haul flights. The Communication on Connecting Europe through high-speed rail announced

further support for rail development, most of which will also benefit conventional passenger

services, including night trains48. The Commission will further strengthen the attractiveness

of rail mobility for tourism, including night trains and rail journeys as a form of tourism

experience, by connecting railway and tourism stakeholders in high-level events.

Effective competition is essential for air connectivity, as shown by the growth in communities

served since the liberalisation of EU air services. The Commission will propose to revise the

Air Services Regulation to make air travel in Europe more reliable, transparent and resilient,

to the benefit of tourism. Additionally, the fitness check of airport legislation49 and the

upcoming renewed aviation strategy50 aim to keep the EU aviation market competitive and

well connected through its airports, including in islands, remote areas, outermost regions and

with third countries, while increasing the sustainability of the sector.

Sea connections are equally vital for reaching many destinations. EU ports handle around 395

million passengers a year and, as the EU Ports Strategy51 recognises, they are lifelines for

islands, coastal and the outermost regions. EU port and marinas infrastructures should be

upgraded, modernised and become more sustainable. Where public needs cannot be met by the

market on significant routes, the Commission will continue to support Member States in

designing public service obligations, especially for remote, island and underserved regions. An

obstacle that visitors experience when travelling by leisure boat in the EU is when recreational

boating licences are not recognised across countries52. The Commission will seek to harmonise

45 European Commission, ‘TEN-T Governance’, Directorate-General for Mobility and Transport, accessed

November 2026. 46 European Commission, ‘One Journey, One Ticket, Full Rights: Commission Simplifies Europe-Wide Travel

Booking and Train Travel’, May 2026. 47 European Commission, ‘High-Speed Rail Plan’, Directorate-General for Mobility and Transport, accessed

November 2026. 48 European Commission, ‘Connecting Europe through High-Speed Rail’, COM(2025) 903 final, November 2025. 49 European Commission, ‘Revision of the Air Services Regulation’, Have Your Say, accessed November 2026; European Commission, ‘Aviation Fitness Check of EU Airport Legislation’, Have Your Say, accessed November

2026. 50 European Commission, ‘EU Aviation Strategy’, Have Your Say, accessed November 2026. 51 European Commission, ‘Commission Unveils EU Ports Strategy to Strengthen Competitiveness, Security and

Sustainability of European Ports’, March 2026. 52 European Commission, Directorate-General for Mobility and Transport, Panteia, Kourounioti, I. and Burgess,

A., ‘Study to Determine the Advantages and Drawbacks of a Possible Mutual Recognition of Boating Licences

for Recreational Boat Operators – Final Report’, Publications Office of the European Union, 2025, accessed

November 2026.

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this system with a proposal for a Council Decision to apply UNECE Resolution No. 40 on an

International Certificate for Operators of Pleasure Craft.

Renting a car provides an opportunity to discover different destinations within and across

borders. Today, there are still many barriers for multi-country trips in Europe. Consequently,

the Commission will present a legislative proposal for the easier and more affordable use

of rental cars across borders and will work with the car rental sector to develop digital

solutions for contactless check-in. This will simplify multi-country and multimodal trips and

reduce the costs of cross-border car rentals. A regular difficulty for tourists and coach operators

is navigating different local urban vehicle access restrictions. The Commission will launch

a new initiative making this information more widely available and accessible. Additionally,

the recent revision of the Driving Licence Directive53 provides for mobile driving licences

issued by one Member State to be recognised by all others.

To make travel easier once tourists reach their destination, the Commission will work with

public transport authorities and associations to explore solutions for the EU-wide

interoperability of local transport ticketing systems. This will improve access to travel

information and ticket purchasing, and make digital planning, booking and payment options

more accessible, inclusive and easy to use. The Commission will also carry out a study on the

development of the local passenger transport-on-demand sector (taxis and private hire

vehicles with a driver). It will look into obstacles and its potential, in particular its support for

decarbonisation and multimodal mobility, as well as its contribution to tourism.

Active mobility is a key enabler of sustainable tourism, providing zero-emission, healthy and

affordable way of moving around for tourists, both in urban and rural areas. The Commission,

Parliament and Member States committed, in the European Declaration on Cycling54, to

creating favourable conditions to support cycling as a sustainable means of recreation and

tourism. The Commission will continue to promote cycling tourism by supporting the

integration of cycling routes such as EuroVelo55 into public transport and bike-friendly

services, so that visitors can explore destinations in a sustainable manner.

Action area 4: The Commission will

- propose to revise the Air Services Regulation by 2027 to make air travel in Europe

more reliable, transparent and resilient, and have a fitness check of airport legislation,

- propose legislation for easier and more affordable use of rental cars across borders

by 2027,

- further strengthen the attractiveness of rail mobility for tourism by connecting

railway and tourism stakeholders in high-level events by 2027, and

- explore solutions for EU-wide interoperability of local transport ticketing systems

working with public transport authorities and associations by 2028.

53 European Parliament and Council of the European Union, ‘Directive (EU) 2025/2205 of the European

Parliament and of the Council of 22 October 2025 on Driving Licences, Amending Regulation (EU) 2018/1724

and Directive (EU) 2022/2561, and Repealing Directive 2006/126/EC and Commission Regulation (EU) No

383/2012’, Official Journal of the European Union, 2025. 54 European Parliament, Council of the European Union and European Commission, ‘European Declaration on

Cycling’, Official Journal of the European Union, C/2024/2377, April 2024. 55 European Cyclists’ Federation, ‘EuroVelo’, accessed November 2026.

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2 Strengthening sustainability and building resilience The long-term competitiveness of European tourism depends on economic, social and

environmental sustainability. To achieve this, integrated and data-driven management

approaches and trusted cooperation mechanisms across the tourism ecosystem are needed.

Safeguarding the environment and building resilience is protecting the very foundation on

which much of tourism is built.

2.1 Clean and circular transition, and environmental protection

Europe is the fastest-warming continent56, facing more frequent extreme heat, intensified

rainfall and floods, alongside increasing drought and declining rainfall in southern regions, and

reduced snow availability in mountainous regions57. Tourism needs to further reduce its

climate and environmental footprint by limiting emissions, pollution and waste, protecting

biodiversity, animal welfare and natural resources58. Part of the solution is to implement

business models based on circular economy practices, innovation, renewable energy and the

Environment, Social and Governance (ESG) approach. Environmental sustainability brings

enormous opportunities to the sector. This makes climate and environmental sustainability a

priority to act for tourism stakeholders.

The tourism sector needs to implement business models based on circular economy practices

and innovation, which will be supported by a forthcoming proposal for a Circular Economy

Act59. This is particularly important for islands, where circular practices can help

alleviate pressures on waste and water management during peaks. The Waste Framework

Directive60 sets a food waste reduction target of 30% by 2030 in the retail, restaurants, food

services and households.

Tourism sustainability is especially important in dense urban areaswith high flow of tourists,

faced with challenges, including air and noise pollution. At the same time, many EU cities are

frontrunners having successfully managed to reconcile tourism with high level of

environmental protection and sustainable urban development61.

The Commission recently adopted guidelines outlining how Europe's Natura 2000 network

of protected areas can act as a powerful driver of environmentally sustainable and

regenerative tourism, while safeguarding and improving the habitats and species it is designed

to protect62. Europe's network of mountain trails and huts is one example of how active

56 Copernicus Climate Change Service, ‘Why Is Europe Warming So Quickly?’, European State of the Climate

2025, accessed November 2026. 57 European Environment Agency, ‘European Climate Risk Assessment’, EEA Report No. 1/2024, accessed

November 2026. 58 European Commission, ‘EU Biodiversity Strategy for 2030: Bringing Nature Back into Our Lives’, COM(2020)

380 final, May 2020; European Commission, ‘European Water Resilience Strategy’, COM(2025) 280 final, June

2025; European Commission, ‘Commission Recommendation (EU) 2025/1179 of 4 June 2025 on Guiding

Principles of Water Efficiency First’, Official Journal of the European Union, OJ L, 2025/1179, June 2025. 59 European Commission, ‘Circular Economy Act’, Have Your Say, accessed November 2026. 60 European Commission, ‘Waste Framework Directive’, Directorate-General for Environment. 61 European Commission, ‘Benidorm Officially Kicks Off Its 2025 European Green Pioneer of Smart Tourism

Year’, Directorate-General for Mobility and Transport, February 2025; Benidorm City Council, ‘Benidorm Wins

European Green Leaf Award in Portugal and Will Represent EU Green Cities in 2028’, accessed November 2026. 62 European Commission, ‘Staff Working Document: Natura 2000 and Sustainable Tourism’, Directorate-General

for Environment, accessed November 2026.

11

tourism can combine cultural heritage, public health, nature conservation, volunteering and

rural development63.

By the end of 2026, the Commission will finalise rules and guidance for hotels in using a tested

method of Product Environmental Footprint, which will support hotels as they aim to measure

and reduce their environmental impact. In addition, the Commission will present renewed EU

Ecolabel criteria for Tourist Accommodation Services64 to support more sustainable

tourism business models. The Commission will also support tourism SMEs in applying

relevant EU legislation and available tools related to the clean transition and climate

action, including by developing a toolkit for SMEs with guidance implementing climate

actions, offering training and capacity building actions.

Action area 5: The Commission will

- support tourism SMEs in applying relevant EU legislation and available tools

related to the clean transition and climate action, including by developing for SMEs

a toolkit with guidance, offering training and capacity building actions by 2028, and

- present renewed EU Ecolabel criteria for Tourist Accommodation Services by 2028

to support more sustainable tourism business models.

2.2 EU Model for Tourism Management

National authorities, DMOs, regions and local authorities are at the forefront of managing the

growing and overlapping set of challenges and opportunities tourism is facing. Additionally,

tourism and other national, regional, urban or territorial development policies are often

managed in silos. Successfully navigating this multitude of tasks requires integrated

management practices. To support DMOs, building on existing best practices in Member

States, the Commission will proposean EU Model for Tourism Management,which can

serve as a voluntary benchmark for Member States when, for example, drawing up their

National and Regional Partnership Plans, accessing EU funds and leveraging private capital.

The Model will be developed in close consultation with Member States, regions, local

authorities and stakeholders.

The Model will progressively bring together existing and new EU support measures and

practical tools relevant for integrated tourism management. It will provide a collection of

flexible and evolving practical instruments to help destinations integrate tourism into territorial

development and social cohesion strategies and reconcile tourism development with both

environmental and social sustainability objectives. It will establish a common reference

framework to address common challenges, strengthening the involvement of local authorities,

SMEs and communities in decision-making. Building on lessons learnt from relevant EU

initiatives65, this work will start with a preparatory phase launched in 2027 aiming at

developing a blueprint for the methodology, governance framework, tools, success criteria and

benchmarks, and to pilot its application. In this context and together with Member States and

stakeholders, the Commission will also explore the possibility to develop a common

framework to certify sustainable destinations.

63 European Hiking Federation (ERA), ‘EUMA and ERA Charter on European Hiking and Mountain Trails’,

accessed November 2026. 64 European Commission, Joint Research Centre, ‘EU Ecolabel for Tourist Accommodation’, accessed November

2026. 65 European Commission, ‘D3HUB: Data-Driven Transition of European Tourism’, accessed November 2026.

12

Tourism must not only benefit travellers, tourism businesses and local economies, but also

coastal and rural communities66, in line with the EU strategy on resilient, prosperous and

liveable coastal communities67 as well as the European Ocean Pact68. Tourism is a driver of

prosperity that provides a lifeline for demographic vitality and ensures the social and economic

sustainability of the territories in which it develops harmoniously. In this context, particular

attention needs to be paid to the right balance between supply and demand across EU

destinations and its distribution across territories and seasons69. While some destinations attract

many visitors, other areas, equally rich in potential, struggle to attract visitors and capture the

economic benefits that tourism brings. Seasonality remains strong, with 42% of all nights spent

concentrated in the three most popular months70. To address these issues, the Commission will

propose a Council Recommendation on Balanced Tourism Management and an EU

Toolbox for Balanced Tourism. The aim is to help destinations achieve balanced tourism

focusing on common solutions that can be adaptable to local contexts, including in cross-border

contexts. These could highlight how destinations could address seasonal concentration by

promoting year-round tourism, adapting to changing conditions, while improving connectivity

to strengthen the potential for lesser-known destinations to attract visitors. The right balance to

strike is between tourist demand at a specific location and time, and the capacity of the

destination. The Toolbox will bring together common approaches and principles from across

the EU and beyond71, including insights into measures related to short-term rentals72.

Cruise tourism, both at sea and on inland waterways, offers significant economic opportunities

for coastal and island destinations, ports, cities and local businesses. In addition, cruise ship

building underpins the European industrial maritime sector, contributing significantly to

Europe’s strategic maritime autonomy. From this perspective it is important to protect the EU’s

competitiveness as an area of operation for cruise ships. At the same time, cruise tourism

requires carefully balancing arrivals and departures, in certain destinations, and managing its

impacts. To support this objective, the Commission will set up at Cruise Cooperation

Dialogue to bring together Member States, regional and local authorities, industry stakeholders

and civil society. It will aim to identify actionable solutions on further strengthening

sustainability, connectivity, digitalisation, visitor flow management and resilience, in

coordination with relevant EU maritime and ports initiatives73.

66 European Commission, ‘A Long-Term Vision for the EU’s Rural Areas’, accessed November 2026. 67 European Commission, ‘EU Strategy on Resilient, Prosperous and Liveable Coastal Communities’,

COM(2026) 530 final, June 2026. 68 European Commission, ‘The European Ocean Pact’, COM(2025) 281 final, June 2025. 69 Eurostat, ‘Nights Spent at Tourist Accommodation Establishments by NUTS 3 Region’, Eurostat Database,

accessed November 2026. 70 Eurostat, ‘Seasonality in the Tourist Accommodation Sector’, Statistics Explained, accessed November 2026. 71 European Parliament and Council of the European Union, ‘Regulation (EU) 2025/925 of 7 May 2025 on a

Mechanism to Resolve Legal and Administrative Obstacles in a Cross-Border Context’, Official Journal of the

European Union, 2025, accessed November 2026. 72 European Commission, ‘Affordable Housing Act’, accessed November 2026. 73 European Commission, Directorate-General for Maritime Affairs and Fisheries, ‘Good Practices for Sustainable

Cruise Tourism’, Publications Office of the European Union, 2023, accessed November 2026.

13

Action area 6: The Commission will

- launch the development of a common EU Model for Tourism Management, as of

2027 in a collaborative process to support tourist destinations, and

- propose a draft Council Recommendation on Balanced Tourism Management and a

common EU Toolbox for Balanced Tourism by 2027to help destinations achieve

beneficial tourist flows.

2.3 Advancing tourists’ rights, affordability and inclusive tourism

The tourism sector’s long-term sustainability also relies on improving accessibility,

strengthening tourist’s rights, and ensuring inclusive tourism. Strong consumer and passenger

rights and their effective enforcement are crucial for sustaining and increasing Europe’s

attractiveness as a tourist destination. The recently revised Air Passenger Rights Regulation74

will benefit tourists through improved protection in case of flight disruptions. It makes

compensation rights clearer and requires airlines to proactively inform passengers about their

right to compensation if they face delays, cancellations or miss their connection. It also

introduces new rights, such as the right to self-rerouting (the right to book their own alternative

travel arrangements) and ensures better enforceability of passenger rights. In addition, it will

be easier for passengers to compare prices, as the revised Regulation requires airlines and

platforms to display, by default, the cost of an airfare including hand luggage. To make life

easier for air travellers, the Commission will explore ways of giving greater visibility to flights

that allow more than 100 ml of liquids on board.

The revised Package Travel Directive will improve the protection of package travellers,

reduce burdens for operators and clarify organisers’ obligations75. The estimated gain for

businesses is at least EUR 181.4 million from lower administrative costs per year across the

EU76, which should also benefit consumers. The upcoming revision of the Consumer Protection

Cooperation Regulation77 will strengthen the public enforcement of consumer rights, including

tourists’ rights, and contribute to a level-playing field for businesses in the tourism sector,

including through direct EU-level enforcement powers in specific cases. For the public, the

Commission will continue to maintain an updated and easily accessible overview of tourists’

rights under existing EU legislation, including package traveller and passenger rights, in plain

language and in all official languages of the EU78. This will support implementation and

enforcement of core consumer rights in tourism and help businesses comply with EU law.

74 European Parliament and Council of the European Union, ‘Regulation (EU) 2026/2202 of the European

Parliament and of the Council of 16 September 2026 Amending Regulation (EC) No 261/2004 Establishing

Common Rules on Compensation and Assistance to Passengers in the Event of Denied Boarding and of

Cancellation or Long Delay of Flights and Council Regulation (EC) No 2027/97 on Air Carrier Liability in

Respect of the Carriage of Passengers and Their Baggage by Air’, Official Journal of the European Union, 2026. 75 European Parliament and Council of the European Union, ‘Directive (EU) 2026/1024 of the European

Parliament and of the Council of 29 April 2026 Amending Directive (EU) 2015/2302 to Make the Protection of

Travellers More Effective and to Simplify and Clarify Certain Aspects of That’, Official Journal of the European

Union, 2026. 76 European Commission, ‘Commission Staff Working Document: Impact Assessment Report Accompanying the

Proposal for a Directive of the European Parliament and of the Council Amending Directive (EU) 2015/2302 to

Make the Protection of Travellers More Effective and to Simplify and Clarify Certain Aspects of the Directive’,

SWD(2023) 906 final, 2023. 77 European Parliament and Council of the European Union, ‘Regulation (EU) 2017/2394 of 12 December 2017

on Cooperation between National Authorities Responsible for the Enforcement of Consumer Protection Laws and

Repealing Regulation (EC) No 2006/2004’, Official Journal of the European Union, 2017. 78 European Union, ‘Travel’, Your Europe, accessed November 2026; European Commission, ‘Passenger Rights

Campaign’, Directorate-General for Mobility and Transport, accessed November 2026.

14

Affordability is an important aspect of a well-functioning tourism ecosystem. Among EU

residents not making tourism trips, 39% mention financial reasons as one of the reasons for not

participating in tourism79. Affordability determines the ability of a broad range of consumers

to access tourism services and destinations while helping sustain demand across the sector. It

is therefore relevant both from a social and economic sustainability perspective80, particularly

when household purchasing power is under pressure. Member States are encouraged to

make use of existing best-practices on social tourism and related affordability schemes.

Socially sustainable tourism must be inclusive, supporting visitors and local communities alike.

Tourism businesses and destinations that apply ‘design for all’ principles offer benefits not

only for persons with disabilities and reduced mobility, but also for older travellers and families

with young children, and ultimately, for all travellers. Doing so can help develop year-round

tourism opportunities and tap into the growing silver economy. The new European Disability

Card81 will give its holders legal certainty that their disability status will be recognised and

that they will have equal access to special conditions and preferential treatments anywhere in

the EU. Additionally, the Commission will provide information on accessible tourism for

tourism destinations and businesses on the EU Tourism Platform, showcasing good practices

and practical guidance and tools82. The Commission will also propose a targeted revision of

passenger rights legislation83 to make travel more accessible and predictable for persons with

disabilities and persons with reduced mobility.

The Commission will explore with Member States and stakeholders whether the Women in

Transport – Platform for Change84 could serve as a model for a similar platform for the tourism

sector. This would help support stakeholder cooperation and exchange of good practices on

gender equality in tourism, in particular in senior or managerial roles. The Commission will

also explore with stakeholders whether the Network of Ambassadors for

#DiversityInTransport85 could be extended to include tourism to raise awareness on equality

issues in the transport dimension of tourism and support implementation of the Union of

Equality Strategies86.

Cultural tourism is a major tourism segment and a policy lever for regional development,

heritage safeguarding, social inclusion, innovation and sustainability. Sustainable cultural

tourismcan help the EU shift from volume-based tourism towards a more value-led, resilient,

place-sensitive, climate-conscious and socially balanced model. For young people,

DiscoverEU87 offers opportunities to explore Europe’s cultural diversity though

educational, inclusive and sustainable cultural tourism.

79 Eurostat, ‘Persons Not Participating in Tourism by Reason and Sex’, Eurostat Database, accessed November

2026. 80 International Social Tourism Organisation (ISTO), ‘Who We Are’, accessed November 2026. 81 European Parliament and Council of the European Union, ‘Directive (EU) 2024/2841 of the European

Parliament and of the Council of 23 October 2024 Establishing the European Disability Card and the European

Parking Card for Persons with Disabilities’, Official Journal of the European Union, 2024. 82 European Commission, ‘About AccessibleEU’, AccessibleEU Resource Centre, accessed November 2026. 83 European Commission, ‘Passenger Rights: Targeted Revision of Rules to Better Address Needs of Persons with

Disabilities and Reduced Mobility’, Have Your Say, accessed November 2026. 84 European Commission, ‘Women in Transport – EU Platform for Change’, Directorate-General for Mobility and

Transport, accessed November 2026. 85 European Commission, ‘Diversity in Transport’, Directorate-General for Mobility and Transport, accessed

November 2026. 86 European Commission, ‘Gender Equality Strategy 2026–2030’, COM(2026) 113 final; European Commission,

‘Enhancing the Strategy for the Rights of Persons with Disabilities up to 2030’, COM(2026) 541 final; European

Commission, ‘Union of Equality: LGBTIQ+ Equality Strategy 2026–2030’, COM(2025) 725 final. 87 European Commission, DiscoverEU, accessed November 2026.

15

Action area 7: The Commission will

- propose a targeted revision of passenger rights legislation by 2028 to improve

accessibility for persons with disabilities and persons with reduced mobility, and

- set up a dedicated information point on EU Tourists’ Rights, by 2027,and on

Accessible Tourism, by 2028, as part of the EU Tourism Platform.

2.4 Strengthening resilience, crisis preparedness and responsiveness

Recent and ongoing geopolitical shocks together with rising risks from climate hazards,

transport disruptions, cybersecurity incidents and public health emergencies, highlight the

tourism ecosystem’s exposure to crises and the need for preparedness and coordinated action.

Tourism resilience is already supported by a wide range of EU preparedness, response and

recovery instruments88. With regards to geo-political risks, the Commission acknowledges the

specific situation of regions and islands with pressures on visitors due to negative impacts of

geopolitical crises over security concerns and migration, and supports addressing their

consequences, including by attracting visitors, rebuilding confidence and strengthening more

resilient tourism models89. In this context, the EastInvest facility can play an important role in

supporting the sector in the eastern border regions90.

As crises will likely persist and new ones emerge, the EU Tourism Crisis Coordination

Network will be established. It will bring together tourism crisis coordinators from the

Commission, Member States and regions to exchange information, assess tourism-specific

impacts and strengthen preparedness, including by drawing on relevant private-sector and

international expertise. For example, the hospitality sector can contribute by building a network

of ‘safe heaven shelters’ offering shelter and support during crisis and emergencies. Rather

than duplicating existing EU crisis coordination and preparedness mechanisms91, the Network

will complement them by ensuring that information reaches tourism authorities often not

directly represented and by feeding tourism-specific impacts and needs into the wider cross-

sectoral crisis preparedness and coordination.

Climate resilience is an integral part of tourism preparedness and responsiveness. The

Commission will take advantage of the principles, provisions and tools of the EU Framework

for Climate Resilience92, such as the reference global warming trajectory, to make Europe’s

tourism sector climate-resilient by design. This also includes the Climate Insurance Alliance

that aims to reduce the insurance protection gap also of the tourism sector. In the context of

88 These include the Union Civil Protection Mechanism, the Preparedness Union Strategy, the Transport

Contingency Plan, the Internal Market Emergency and Resilience Act, EU early warning and monitoring tools,

and financial support such as the European Union Solidarity Fund and relevant State aid frameworks. 89 European Commission, ‘Commission Notice: Guidance Clarifying Certain EU Rules Applicable to Passengers

and Tourism as Well as Transport Operators, Including in Light of the Current Reduced Supply of Jet Fuel from

the Middle East’, C/2026/2669, Official Journal of the European Union, May 2026; 90 European Commission, ‘Communication on the EU’s Eastern Regions Bordering Russia, Belarus and

Ukraine: Strong Regions for a Safe Europe’, COM(2026) 82 final. 91 European Commission, ‘Proposal for a Regulation of the European Parliament and of the Council on the Union

Civil Protection Mechanism and Union Support for Health Emergency Preparedness and Response, and Repealing

Decision No 1313/2013/EU’, COM(2025) 548 final, 2025, accessed November 2026; European Commission and

High Representative of the Union for Foreign Affairs and Security Policy, ‘Joint Communication to the European

Parliament, the European Council, the Council, the European Economic and Social Committee and the Committee

of the Regions on the European Preparedness Union Strategy’, JOIN(2025) 130 final, 2025, accessed November

2026. 92 European Commission, ‘A Resilient Europe for a Changing Climate: Communication on the EU Framework

for Climate Resilience’, COM(2026) 720 final.

16

wildfires, the Communication on integrated wildfire risk management93 also encourages

Member States to step up the collaboration between tourism stakeholders, farmers and

foresters, local authorities, and fire safety experts to make visitors more risk aware. As

announced in the State of the Union speech 2026, the Commission will present by 2027 a

European Heatwave Plan that will also enhance the climate resilience of tourism.

Action area 8: The Commission will

- establish the EU Tourism Crisis Coordination Network by 2027 to better prepare for

and respond to crises affecting specifically the tourism sector, and

- support Europe’s tourism sector in advancing climate resilience by 2027, building on

the EU Framework for Climate Resilience.

3 Enhancing international cooperation and outreach Tourism is a powerful driver of closer connections, bringing people together across borders.

The Strategy aims to strengthen the EU’s global outreach and leadership in this sector by

leveraging tourism more strategically as an instrument of the EU’s external action and soft

diplomacy. The Commission will actively engage in international organisations and

multilateral fora, including the OECD, the United Nations and its specialised agencies, and

relevant G20 and G7 platforms. The Commission and UN Tourism will agree on a new

Cooperation Framework to jointly support competitive, sustainable and resilient tourism. The

Commission will also strengthen bilateral and regional tourism cooperation with partner

countries, including through new, dedicated EU Tourism Dialogues and Fora, such as the

ones with EU-Gulf Cooperation Council (GCC) Forum, India and Japan, leveraging the

experience from existing EU Transport Dialogues and, where relevant, broader international

partnerships. These can support cooperation in areas of mutual interest, including sustainability

and resilience, skills, digitalisation and connectivity, with particular attention to enlargement

and neighbourhood countries. For instance, the Pact for the Mediterranean94 boosts tourism by

promoting sustainable development, cultural heritage preservation and cross-border

collaboration to increase the region’s appeal as a year-round destination. In addition, as part of

the new Arctic Strategy95, sustainable tourism can contribute to connectivity, local

development and economic diversification.

Complementing these broader international partnerships, strengthening Europe’s global

position requires a clear and compelling narrative of what European tourism represents. To this

end, the EU will strengthen joint visibility and branding efforts to bolster its position in global

tourism markets. It will strengthen the Destination Europe Framework providing a European

approach for coordinated promotion abroad that complements national, regional and local

brands. Coordinated promotion will further contribute to diversifying source markets, reducing

destinations’ dependence on a limited number of them and support regions suffering from the

impacts of geopolitical shocks. In the case of regions bordering Russia, Belarus and Ukraine,

support is needed to address the impact of the reduced flow of international tourism over

security concerns, including by attracting visitors, rebuilding confidence and strengthening

more resilient tourism models, in line with the Eastern Border Regions Communication. As

part of the Destination Europe Framework, the Commission will encourage cooperation

among regions across Europe to develop joint multi-destination itineraries such as

93 European Commission, ‘Communication on Integrated Wildfire Risk Management’, COM(2026) 330 final. 94 European Commission, ‘Pact for the Mediterranean’, Directorate-General for the Middle East, North Africa and

the Gulf, accessed November 2026. 95 European Commission, ‘EU Arctic Policy – Update’, Have Your Say, accessed November 2026.

17

European Discovery Routes, in synergy with DiscoverEU Culture Routes and the European

Heritage Label, that invite visitors to stay longer and discover lesser-known destinations.

Through its visa policy, the EU will continue to make legitimate travel easier, faster and more

predictable for tourists and business travellers who need a visa to enter the EU in full respect

of existing competences. In line with the EU Visa Policy Strategy96, the Commission will also

explore the creation of a common list of verified companies for trusted business travellers. For

travellers who do not need a visa to enter the EU, the European Travel Information and

Authorisation System will make border checks more efficient.

Action area 9: The Commission will

- engage actively in international organisations and multilateral fora, including by

agreeing on a new Cooperation Framework between the Commission and UN

Tourism by 2027,

- organise dedicated Tourism Dialogues and Fora with key regions and partners, and

- enhance the Destination Europe Framework by 2028, providing a European

approach for coordinated promotion abroad.

4 Ensuring investment, governance and cooperation Investment and governance ensures enough support for the sector within an effective

cooperation framework to deliver the Strategy’s ambition.

4.1 Integrated tourism funding and investment framework

To turn this Strategy into reality, tourism needs continued investments. Member States are

invited to allocate sufficient national private and public investments to competitive,

sustainable and resilient tourism, taking into account the sector’s investment gap and growth

in tourism demand97. This also covers infrastructure needed for tourism (e.g. ports, marinas,

train stations and waste management).

Under the EU’s current Multi-annual Financial Framework (MFF) for 2021 to 2027, tourism

benefits from 15 EU financing programmes. These include Cohesion Policy, the Recovery and

Resilience Facility (RRF), Horizon Europe, the Single Market Programme, the Digital Europe

Programme, the Common Agricultural Policy (CAP) LEADER instrument and Erasmus+. By

the end of the period, the sector is expected to have benefitted from an estimated EUR 18

billion in EU support, mainly through the RRF (around EUR 13 billion) and the European

Regional Development Fund (ERDF), including Interreg (EUR 3.7 billion; EUR 4.9 billion

including national contributions)98. Under the RRF and ERDF, Member States and regions have

included tourism measures covering infrastructure, competitiveness of tourism SMEs, smart

destination platforms, innovative management models, digitalisation, resilience and skills. The

RRF has also supported reforms of the legal framework for tourism, developing national,

regional and local sustainable tourism strategies, and the operationalisation of DMOs, which

play an essential enabling role for the effectiveness of investments. Under the Single Market

96 European Commission, ‘Communication from the Commission to the European Parliament and the Council on

EU Visa Policy Strategy’, COM(2026) 43 final. 97 World Travel & Tourism Council (WTTC), ‘Bridging the Gap: Travel & Tourism Capital Investment and

Demand Growth Across the G20’, accessed November 2026; OECD, ‘OECD Tourism Trends and Policies 2026’,

OECD Publishing, Paris, 2026. 98 European Commission, Directorate-General for Internal Market, Industry, Entrepreneurship and SMEs,

Transition Pathway for Tourism – Taking Stock of Progress by 2024, Publications Office of the European Union,

2025.

18

Programme, the Commission launched tourism-focused calls to support SMEs worth over EUR

48 million for 2021-2025. Other EU funding instruments, such as the European Maritime,

Fisheries and Aquaculture Fund (EMFAF), have also supported tourism-related initiatives,

notably through dedicated calls promoting sustainable maritime and coastal tourism in EU

coastal and outermost regions.

In the short term, the Member States, regions and tourism stakeholders can make use of

funding still available under the MFF 2021-2027 to support competitive, sustainable and

resilient tourism and related investments. In the medium term, the design of the

Commission’s proposal for the MFF 2028-2034 offers an integrated and transversal funding

perspective for tourism. It includes (i) Horizon Europe and the European Competitiveness Fund

supporting research and innovation, support to SMEs, the clean transition and scaling up,

including a specific reference to sustainable tourism, (ii) AgoraEU supporting culture, cultural

and linguistic diversity and heritage and Erasmus+ supporting education and training

development, (iii) EU-level financial instruments such as InvestEU99, with support from

implementing partners such as the European Bank for Reconstruction and Development

(EBRD)100, the European Investment Bank Group (EIB), including the European Investment

Fund101, explicitly recognising tourism and travel as relevant investment sectors, and (iv) the

specific objective in the National and Regional Partnership Plans and Interreg Plan. The MFF

2028-2034 is therefore a unique opportunity to channel funding along the pillars set out

in this Strategy, in particular on common priority investment areas (e.g. digital, innovation,

environment and skills). Financial instruments could play a particularly significant role in

harnessing private investment and involve local banks that are close to the reality of tourism

SMEs.

The Commission invites Member States to make the most of these funding opportunities

that are expected to be made available under the 2028-2034 MFF to boost the

competitiveness, sustainability and resilience of the tourism sector considering the specific

national and regional needs102. Getting these priorities right will also be supported by

strengthening the assessment of economic and social impacts of tourism in the European

Semester process, including the Country Reports. Moreover, the Commission will support

Member States and regions in designing tourism-related investments and reforms,

includingthrough sharing of best practices of how to set up a project pipeline and use financial

instruments to be impactful for SMEs.

The Commission has regularly published guidance on access to funding for SMEs103. In

2026, the Commission updated guidance on accessing EU funding. A practical toolkit of dos

and don’ts helps SMEs identify funding opportunities and guide them through the application

process. The platform’s section on funding support and its practical tools will be regularly

updated, including for the MFF 2028-2034. In addition to this hands-on guidance, the

Commission will continue providing local expert advice to tourism businesses via the

Enterprise Europe Network104.

99 European Commission, ‘InvestEU’, accessed November 2026. 100 European Bank for Reconstruction and Development (EBRD), ‘Real Estate and Tourism Projects’, accessed

November 2026. 101 European Investment Fund (EIF), ‘Home’, accessed November 2026. 102 To note that the scope and availability of such support will depend on the outcome of the ongoing MFF

negotiations. 103 European Commission, ‘EU Guide Helps Tourism Stakeholders Navigate Funding for the Green and Digital

Transition’, accessed November 2026; European Commission, ‘EU Funding and Businesses’, Directorate-General

for Mobility and Transport, accessed November 2026. 104 European Commission, ‘Tourism’, Enterprise Europe Network, accessed November 2026.

19

4.2 An effective EU Tourism Cooperation Framework

The future vision for EU tourism as a joint and collaborative endeavour can only be delivered

through a strong cooperation mechanism, overcoming operational fragmentation, while

respecting the principle of subsidiarity. The Commission is committed to ensuring the effective

implementation of this strategy jointly with all stakeholders. To this end, the Commission will

launch a high-level EU Tourism Alliance, chaired by the responsible Commissioner, and

representing the shared interests of the tourism ecosystem. The Alliance will bring together

Member States, regions, local authorities, the private sector and the Commission. At its heart

will be a set of workstreams covering this Strategy’s main actions. These workstreams will be

flexible and adaptable according to emerging needs and priorities, relying on specific project

funding and governance as appropriate.

The main objective of the Alliance will be to help steer the implementation of this Strategy

and ensure synergies across its key actions. By bringing together the existing EU tourism

cooperation structures, notably the Tourism Advisory Committee (TAC)105 and the Together

for EU Tourism Expert Group (T4T)106, with the implementation of the Strategy’s action

strands (e.g. EU Academy, EU Tourism Observatory, the EU Simplification Initiative), the

Alliance will provide the legitimacy, scale and operational grounding needed to facilitate

cooperation, identify challenges and potential solutions, and facilitate their uptake across the

sector. In 2027, the Commission will launch a call for interest for additional private sector

representatives to participate in the Alliance.

To ensure that the full variety of Europe’s wider tourism ecosystem has a strong voice and can

engage actively in EU tourism policymaking, the Alliance will include an online community

open to individuals, civil society organisations, professional associations, businesses and other

interested parties, hosted on the existing structures107. It will function as a sounding board for

emerging trends and issues in European tourism and promote open discussion and shared

intelligence on tourism policy and practice.

Cooperation extends beyond frameworks and should celebrate excellence. Since 2019, the

European Capitals of Tourism initiative has recognised destinations for exceptional

achievements in sustainable, accessible, digital and cultural tourism. It is time to take the

Capitals initiative a significant step further to amplify the visibility of European destinations

and the hidden gems for their excellence, embodying the best of what Europe has to offer. The

Commission will prepare a proposal for a Decision of the European Parliament and the Council,

for a new European Capitals of Tourism Award, drawing on the experience of the European

Capitals of Culture. The Commission will strengthen the sustainable tourism dimension of

European Capitals of Culture with relevant guidance to title holding cities.

To further strengthen cooperation across the sector, the Commission will also launch the first

Tourism Europe Days, as a highly visible biennial flagship event which will be a unique

meeting point to discuss topics related to tourism in Europe. It will bring together high-level

politicians, financial institutions, industry representatives and tourism stakeholders to discuss

specific measures and exchange best practices on developing competitive, sustainable and

resilient tourism in Europe.

105 European Commission, ‘Tourism Advisory Committee’, Register of Commission Expert Groups and Other

Similar Entities, accessed November 2026. 106 European Commission, ‘Together for EU Tourism – T4T’, Register of Commission Expert Groups and Other

Similar Entities, accessed November 2026. 107 European Commission, ‘Getting Started: Exploring the EU Tourism Platform’s Home Page and Navigation’,

accessed November 2026.

20

Action area 10: The Commission will

- set up an EU Tourism Alliance by 2027 to streamline the variety of existing EU

coordination and expert groups and help steer the implementation of this Strategy,

- support Member States and regions in designing tourism-related investments

and reforms, includingthrough sharing of best practices of how to set up a project

pipeline and use financial instruments to be impactful for SMEs,

- continue developing local expert advisory capacity in tourism via the Enterprise

Europe Network and other relevant initiatives,

- propose anew European Capitals of Tourism Award by 2027 based on the existing

initiative, and

- launch the first Tourism Europe Days by 2027, as a highly visible biennial flagship

event to further strengthen the cooperation across the tourism sector.

The way forward – shaping the future of EU tourism Europe’s unmatched natural, cultural and territorial diversity is tourism’s greatest asset. In turn,

tourism is one of Europe's most powerful expressions of what it means to be a Union:

welcoming, safe, competitive, sustainable, resilient and greater than the sum of its parts. This

Strategy positions tourism as a key sector sustaining the EU’s competitiveness, sustainability

and resilience; a driver of mutual understanding, social cohesion and Europe’s standing in the

world.

The road ahead requires joint efforts at every level to respond to the challenges faced by

Europe’s tourism sector. Balancing tourism flows, closing skills gaps, embedding data and

digital capabilities, ensuring inclusiveness and affordability as well as seamless connectivity,

a high level of tourists’ rights and turning environmental pressures into opportunities for

innovation cannot be achieved in isolation. To ensure long-term sustainability of EU tourism

in a world of recurring disruption, the ability to anticipate, absorb and recover from shocks is

essential. This Strategy provides the framework in which all actors at all levels can act together

with greater impact.

While Europe is the world’s leading tourism destination, maintaining this status requires

constant renewal. In an increasingly competitive global market, Europe must continue to

distinguish itself through quality, sustainability, accessibility and authentic experiences. This

Strategy gives the sector the voice, the visibility and the governance it needs, for visitors,

businesses and local communities to reap tourism’s full benefits.

EN EN

EUROPEAN COMMISSION

Brussels, 4.11.2026 COM(2026) 777 final

ANNEX

ANNEX

to the

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

EU Sustainable Tourism Strategy

{SWD(2026) 777 final}

1

EU Sustainable Tourism Strategy – timing of actions

Pillar 1 – Boosting the competitiveness of EU tourism

Action area 1: Enabling SMEs to thrive: collaboration, simplification and growth

Launching an EU Simplification Initiative for tourism to gather

practical evidence of the administrative burden faced by the tourism

sector and destinations.

First half

2027

Presenting in 2026 a proposal to revise and modernise VAT rules

applying to the travel and tourism sector.

Second

half 2026

Launching focused support to tourism SMEs for their clean/digital

transitions.

Second

half 2027

Action area 2: Data, digitalisation and innovation

Support Member States to deploy the Common European Tourism

Data Space to ensure access to high-quality, reliable data.

First half

2029

Establishing an EU Tourism Observatory to monitor developments

across the sector, analyse important trends and provide insights for EU

policy.

First half

2027

Facilitating greater synergies among tourism start-ups and with

investors, including through matchmaking events.

First half

2027

Proposing to modernise Regulation (EU) 692/2011 concerning

European statistics on tourism.

Second

half 2027

Action area 3: Skills and talent for tourism

Launching a high-quality EU Tourism Academy to provide the crucial

training and talent development that the sector needs.

Second

half 2027

Publishing a study on working conditions in tourism. Second

half 2028

Action area 4: Seamless and sustainable connectivity and infrastructures

Proposing to revise the Air Services Regulation to make air travel in

Europe more reliable, transparent and resilient, and have a fitness check

of airport legislation.

Second

half 2027

Proposing legislation for easier and more affordable use of rental cars

across borders.

Second

half 2027

Further strengthening the attractiveness of rail mobility for tourism by

connecting railway and tourism stakeholders in high-level events.

Second

half 2027

Exploring solutions for EU-wide interoperability of local transport

ticketing systems working with public transport authorities and

associations.

First half

2028

Pillar 2 – Strengthening sustainability and building resilience

Action area 5: Clean and circular transition

Support tourism SMEs in applying relevant EU legislation and

available tools related to the clean transition and climate action,

including by developing for SMEs a toolkit with guidance, offering

training and capacity building actions.

Second

half 2028

Presenting renewed EU Ecolabel criteria for Tourist Accommodation

Services to support more sustainable tourism business models.

Second

half 2028

2

Action area 6: EU Model for Tourism Management

Launching the development of a common EU Model for Tourism

Management in a collaborative process to support tourist destinations.

Second

half 2027

Proposing a draft Council Recommendation on Balanced Tourism

Management and a common EU Toolbox for Balanced Tourism to

help destinations achieve beneficial tourist flows.

Second

half 2027

Action area 7: Advancing tourists’ rights, affordability and inclusive tourism

Proposing a targeted revision of passenger rights legislation to

improve accessibility for persons with disabilities and persons with

reduced mobility.

Second

half 2028

Setting up a dedicated information point on EU Tourists’ Rights and on

Accessible Tourism as part of the EU Tourism Platform.

First half

2027 and

first half

2028

Action area 8: Strengthening resilience, crisis preparedness and responsiveness

Establishing the EU Tourism Crisis Coordination Network to better

prepare for and respond to crises affecting specifically the tourism sector.

Second

half 2027

Supporting Europe’s tourism sector in advancing climate resilience,

building on the EU Framework for Climate Resilience.

Second

half 2027

Pillar 3 – Enhancing international cooperation and outreach (Action area 9)

Engaging actively in international organisations and multilateral fora,

including by agreeing on a new Cooperation Framework between the

Commission and UN Tourism.

Ongoing

Organising dedicated Tourism Dialogues and Fora with key regions

and partners.

Ongoing

Enhancing the Destination Europe Framework, providing a European

approach for coordinated promotion abroad.

First half

2028

Ensuring investment, governance and cooperation (Action area 10)

Setting up an EU Tourism Alliance to streamline the variety of existing

EU coordination and expert groups and help steer the implementation of

this Strategy.

Second

half 2027

Supporting Member States and regions in designing tourism-related

investments and reforms, includingthrough sharing of best practices of

how to set up a project pipeline and use financial instruments to be

impactful for SMEs.

Ongoing

Continue developing local expert advisory capacity in tourism via the

Enterprise Europe Network and other relevant initiatives.

Ongoing

Proposing a new European Capitals of Tourism Award based on the

existing initiative.

Second

half 2027

Launching the first Tourism Europe Days, as a highly visible biennial

flagship event to further strengthen the cooperation across the tourism

sector.

Second

half 2027

EN EN

EUROPEAN COMMISSION

Brussels, 4.11.2026 SWD(2026) 777 final

COMMISSION STAFF WORKING DOCUMENT

Tourism - A Key Asset for Europe

Towards an EU Sustainable Tourism Strategy

Accompanying the document

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

EU Sustainable Tourism Strategy

{COM(2026) 777 final}

1

Contents

Introduction ........................................................................................................................................... 3

Chapter 1. Tourism in the EU – nature, weight and impact ............................................................. 4

1.1 The tourism ecosystem .................................................................................................... 4

1.1.1 Tourism – a formal classification ................................................................................ 5

1.1.2 Tourism diversity – illustrative typologies ................................................................... 6

1.2 Measuring tourism flows and impact ............................................................................... 16

1.2.1 Data sources and approaches .................................................................................... 16

1.2.2 Economic weight .................................................................................................... 18

1.2.3 Tourism demand, distribution and seasonality ............................................................ 21

1.2.4 Employment .......................................................................................................... 24

1.3 Trends and challenges shaping European tourism ............................................................. 25

Chapter 2. The path to the Strategy .................................................................................................. 29

2.1 The evolving EU policy context ..................................................................................... 29

2.2 Summary of consultations and other public collaborative input .......................................... 31

2.2.1 Open and targeted public consultations ..................................................................... 31

2.2.2 Targeted stakeholder dialogues ................................................................................ 34

2.2.3 Youth Dialogues .................................................................................................... 36

2.2.4 Public debates and other targeted expert input into the Strategy .................................... 38

2.3 EU institutional policy positions and evidence ................................................................. 44

2.3.1 EU institutional policy positions and recommendations ............................................... 45

Chapter 3. The pillars of the Strategy ............................................................................................... 48

3.1 A competitive tourism sector .......................................................................................... 48

3.1.1 Skills and quality jobs in tourism .............................................................................. 48

3.1.2 A data-driven sector ................................................................................................ 54

3.1.3 Simplification of the tourism operational environment ................................................ 62

3.1.4 Funding ................................................................................................................. 66

3.2 A sustainable, accessible and resilient ecosystem .............................................................. 75

3.2.1 EU Model for Tourism Management ......................................................................... 75

3.2.2 Balanced, accessible and inclusive tourism ................................................................ 78

3.2.3 Environmental transition and regenerative tourism ..................................................... 87

3.2.4 Crisis preparedness and resilience ............................................................................. 95

3.3 Sustainable connectivity .............................................................................................. 102

2

3.3.1 Planning and booking a journey ............................................................................. 103

3.3.2 Ensuring a sustainable, seamless and accessible travel experience across Europe.......... 105

3.3.3 The passenger experience and passenger rights ........................................................ 115

3.4 Global outreach and branding ....................................................................................... 117

3.4.1 Strengthening the international dimension of EU tourism policy ................................ 117

3.4.2 International cooperation on tourism skills ............................................................... 121

3.4.3 Strengthening international connectivity .................................................................. 122

3.4.4 Facilitating travel to Europe through modern border and visa management .................. 123

3.4.5 Destination Europe ............................................................................................... 124

Chapter 4. Governance and review ................................................................................................. 127

4.1 EU Tourism Alliance .................................................................................................. 127

4.2 EU Tourism Platform .................................................................................................. 128

4.3 Review and reporting .................................................................................................. 129

3

Introduction

This Staff Working Document accompanies the Communication on a European Union (EU)

Sustainable Tourism Strategy1. It provides the analytical basis for the Strategy, including the

evidence base, consultation findings and implementation considerations for the proposed

actions. The document is organised around the main policy areas addressed by the Strategy,

with a particular focus on the consultation results underpinning each policy area.

The document gives an overview of the remarkable variety of European tourism and its

considerable economic, social and territorial impact. Tourism is, by its nature, largely place-

based and locally or regionally managed. At the same time, tourism flows regularly cross

regional or national borders, with visitors travelling and businesses operating across

destinations. Many of the challenges affecting tourism, including climate change, technological

developments, international competition and transport connectivity, extend beyond individual

destinations and national borders, requiring coordinated responses across different policy areas

and levels of governance. These characteristics of tourism are reflected in the European

Union’s legal and policy framework: Article 195 of the Treaty on the Functioning of the

European Union (TFEU) provides that the Union complements Member State action,

promoting the competitiveness of businesses and fostering cooperation between Member

States, in particular through the exchange of good practices.

EU tourism policy has been evolving over the years. The 2022 Transition Pathway for Tourism2

set a collaborative framework to help the sector recover from the COVID-19 pandemic, address

the green and digital transitions, and build long-term resilience. Based on the Transition

Pathway for Tourism, the Council of the European Union subsequently adopted the European

Tourism Agenda 20303, addressing economic, environmental, cultural, and social

sustainability in line with the United Nations 2030 Agenda for Sustainable Development.

During 2024-2029 the European Commission is going a step further in recognising tourism as

a major EU industry and raising its visibility, by announcing a new EU Sustainable Tourism

Strategy and by integrating transport and tourism within a single Commissioner portfolio, with

the mandate to intensify the Union’s efforts to promote a resilient and competitive tourism

sector4.

Against this backdrop, calls have emerged for a stronger and better coordinated EU-level policy

response to support the sector’s development and resilience, particularly in the face of natural

and human-made disasters and geopolitical shocks, complementing actions by Member States,

regional and local authorities.

1 European Commission, EU Sustainable Tourism Strategy, COM°(2026)°777 final, November 2026. 2 European Commission, ‘Tourism Transition Pathway’, accessed November 2026. 3 Council of the European Union, Council conclusions on ‘European Agenda for Tourism 2030’, document

15441/22, December 2022. 4 Ursula von der Leyen, Mission letter to Apostolos Tzitzikostas, Commissioner for Sustainable Transport and

Tourism, European Commission, December 2024.

4

This document first sets out an overview of the European tourism ecosystem and its

considerable diversity (Chapter 1). It then presents the extensive consultation activities and

policy contexts underpinning the Strategy (Chapter 2). Detailed context for the actions

proposed by the Strategy is given in Chapters 3 and 4.

Chapter 1. Tourism in the EU – nature, weight and

impact

Tourism is one of the EU’s largest economic sectors, with a considerable business, economic

and employment footprint across the Union. It has a strong cultural and territorial dimension,

rooted in Europe’s diverse landscapes, heritage and traditions. Tourism is also inherently

international, connecting the rest of the world to Europe, and has consistently been an innovator

and early adopter of new technologies. Tourism is far from a monolithic sector. It is

characterised by a multitude of interconnected subsectors and activities, from cultural, rural

and coastal tourism to sport, health and social tourism, serving a large variety of visitor profiles

and age groups.

Understanding the diversity of the tourism ecosystem is essential for designing effective public

policy. The following sections therefore first describe the structure of the ecosystem before

examining the major trends and challenges that shape its future development.

1.1 The tourism ecosystem

Tourism is commonly understood as “a social, cultural and economic phenomenon which

entails the movement of people to countries or places outside their usual environment for

personal or professional purposes”5. While this definition appears straightforward, tourism

does not constitute a single economic sector. Rather, it is a complex ecosystem bringing

together a wide range of interconnected activities that collectively shape the visitor experience.

As recognised by the European Parliament in its Resolution of April 20266, “the tourism

ecosystem covers many industries, including transport, travel agencies and tour operators,

support services, accommodation and catering, creative arts and entertainment, and sports

and amusement activities.” It also includes a remarkable variety of tourism experiences,

ranging from cultural, nature-based (e.g. eco-tourism) and gastronomic tourism to business,

wellness, sport, cruise and many other specialised forms of tourism. Tourism also takes place

across a wide variety of destinations, including urban, rural, coastal, island, mountain and

outermost regions, each with distinct characteristics, opportunities and challenges. These

different forms of tourism can also be seen through the lens of the individuals who travel and

are shaped by their needs and expectations: families, young people, seniors, business travellers,

persons with special needs, group tours and other visitors with specific access or support needs.

Transport is fundamental to this ecosystem, acting as both the primary enabler of visitor

mobility and a significant component of the overall travel experience. Connectivity across air,

5 UN Tourism, ‘Glossary of Tourism Terms’, accessed November 2026. 6 European Parliament,Resolution of 28 April 2026 on enhancing connectivity, preserving cultural heritage, and driving local excellence in European tourism: destination management and regional tourism growth (2025/2120(INI)).

5

rail, road and maritime networks directly shapes visitor flows, accessibility, and the

environmental footprint of European tourism.

This diversity is one of European tourism's greatest strengths, but it also makes the ecosystem

particularly dependent on developments beyond the tourism sector itself. Tourism is structured

by its local societal, environmental and economic context, as well as by broader trends such as

climate change, demographic change, technological and geopolitical developments. At the

same time, it is influenced by policies across multiple sectors, including education and

employment, finance, environment, consumer protection, transport, and home affairs, while

tourism considerations are not always systematically reflected across these policy areas.

Tourism’s diversity also means that the ecosystem is constantly evolving, adapting and

innovating. No single typology or classification can fully capture the breadth of tourism

activities and experiences. Accordingly, this Staff Working Document does not seek to provide

an exhaustive catalogue of tourism typologies. Rather, the following sections aim to illustrate

the weight, variety and complexity of the tourism ecosystem. The absence of any particular

tourism activity or form from this document should not be interpreted as a judgement on its

importance or policy relevance.

1.1.1 Tourism – a formal classification

Tourism can be described from different perspectives depending on whether the objective is

statistical measurement, economic analysis or policy development. For statistical purposes, the

Statistical Office of the European Union (Eurostat) defines tourism as “the activity of visitors

taking a trip to a main destination outside their usual environment, for less than a year, for any

main purpose, including business, leisure or other personal purpose, other than to be employed

by a resident entity in the place visited.”7 This definition is in line with the International

Recommendations for Tourism Statistics 20088.

From an economic perspective, however, tourism does not constitute a single economic sector

or category. Rather, it spans a range of interconnected economic activities, including

accommodation, food and beverage services, passenger transport, travel agencies and tour

operators, cultural activities, sport and recreation9. This cross-sectoral structure explains why

tourism is often described as an ecosystem and why measuring its economic contribution

requires combining data from multiple sectors, including through Tourism Satellite Accounts

(TSAs)10. For the purposes of the Strategy, the term ‘tourism ecosystem’ refers to this broader

set of interconnected activities, while ‘tourism sector’ is used more specifically when referring

to tourism businesses and industry.

7 European Parliament and Council of the European Union, Regulation (EU) No 692/2011 of the European

Parliament and of the Council of 6 July 2011 concerning European statistics on tourism and repealing Council

Directive 95/57/EC, Official Journal of the European Union, July 2011. 8 United Nations, International Recommendations for Tourism Statistics 2008, January 2010. 9 Eurostat, Statistics Explained ‘Tourism Statistics’; European Commission, Joint Research Centre; Directorate-

General for Mobility and Transport, ‘Background and methodology’, EU Tourism Dashboard, both accessed

November 2026. 10 Eurostat, Tourism Satellite Accounts in Europe – 2026 edition, March 2026.

6

Within this statistical framework, tourism can be classified along several dimensions:

• Scope: a visitor is classified as a tourist (overnight visitor) if the trip includes at least

one overnight stay, or as a same-day visitor (excursionist) otherwise.

• Purpose: personal or professional/business travel. Personal travel includes holidays,

leisure and recreation, visits to friends and relatives, and other personal purposes.

• Destination/origin of visitors: domestic tourism (visits within a country by residents

of that country), inbound tourism (visits to a country by non-residents) or outbound

tourism (visits by residents outside their country).

• Duration: short trips (1-3 nights) or longer stays.

• Socio-demographic characteristics: such as age and gender.

• Transport mode and accommodation type.

• Territory: regional breakdowns of destinations based on the NUTS classification for

territorial units11, complemented by a “type of locality” classification based on the

degree of urbanisation and whether destinations are coastal or non-coastal.

While this statistical framework provides a common basis for measuring tourism, it does not

fully reflect the diversity of tourism experiences, destination types and visitor motivations. The

following section therefore presents a complementary policy typology to illustrate the breadth

of tourism forms addressed by the Strategy.

1.1.2 Tourism diversity – illustrative typologies

The diversity of tourism illustrates both the richness of Europe's tourism offer and the

complexity of the tourism ecosystem. It also demonstrates that tourism policy cannot rely on a

one-size-fits-all approach. While common principles can guide European action, their

implementation must take account of the diversity of destinations, tourism activities, visitor

motivations and local circumstances across the Union.

There is no single comprehensive or mutually exclusive classification of tourism forms.

International and European frameworks describe tourism from different perspectives, including

the characteristics of destinations, visitors’ motivations, tourism activities and experiences, and

visitor profiles. The typology below therefore combines these complementary perspectives. It

draws, where available, on definitions and classifications developed by UN Tourism, Eurostat

and the Joint Research Centre, complemented by tourism forms and market segments identified

through stakeholder consultations and recent EU tourism projects.

11 Eurostat, ‘NUTS – Nomenclature of territorial units for statistics’, accessed November 2026.

7

Table 1. Illustrative dimensions of tourism diversity12

DESTINATION AND

TERRITORIAL CONTEXT TOURISM TYPES AND EXPERIENCES

• Urban/city

• Rural

• Coastal

• Maritime and inland water

• Mountain

• Island

• Natural and protected areas

(including those designated

under the Natura 2000

network)

• Mixed destinations

• Cultural tourism (including heritage, archaeology, arts

and museums, festivals, living culture, creative tourism)

• Gastronomy tourism (including food, local produce,

beverage (wine and brewing heritage routes),

geographical indications)

• Ecotourism and nature-based tourism (including wildlife

watching, birdwatching, dark-sky tourism, recreational

fishing)

• Adventure tourism (including hiking, trekking,

climbing, cycling, diving, horseback riding et al.)

• Sport tourism (including winter sports, golf, water sports

including kayaking, and participation in or attendance at

sporting events)

• Coastal, maritime and inland water tourism (including

cruise, sailing, recreational boating and nautical

activities)

• Health tourism (including wellness and medical tourism)

• Business tourism (including meetings, incentives,

conferences and exhibition (MICE))

• Education tourism

• Visiting friends and relatives

• Religious and pilgrimage tourism

• Shopping tourism

• Rural tourism (including agritourism)

• Other specialised forms, e.g. industrial tourism,

volunteering, community-based tourism etc.

TOURISM PRODUCTS AND

TRAVEL FORMATS VISITOR PROFILES AND MARKET SEGMENTS

• Cruise tourism

• Camping and caravanning

• Rail tourism (including

heritage rail)

• Road touring (including

coach tourism)

• Walking and cycling routes

• Cultural and thematic routes

• Package tours and organised

travel

• Premium/luxury and budget

tourism products

• Young people

• Families

• Seniors

• Solo travellers

• Groups

• Women travellers

• LGBTQI+ travellers

• Business travellers

• Persons with disabilities and other travellers with

accessibility needs

• Digital nomads and other emerging visitor profiles

The categories above are illustrative and should not be understood as a formal, exhaustive or

mutually exclusive classification. Tourism experiences commonly combine several

dimensions: the same destination may accommodate different tourism types, products and

12 United Nations, International Recommendations for Tourism Statistics 2008, January 2010; UN Tourism,

UNWTO Tourism Definitions (2019), accessed November 2026; Eurostat, Tourism statistics and Territorial

typologies, accessed November 2026; European Commission Joint Research Centre, A new European regional

tourism typology based on hotel location patterns and geographical criteria, August 2021; European Commission,

Sustainable EU Tourism – Shaping the Tourism of Tomorrow, accessed November 2026.

8

visitor groups, while the same tourism activity may take place across very different territorial

settings.13 Even within the same destination category, local circumstances can vary

considerably: for example, mountain destinations may face challenges ranging from

depopulation and limited tourism development to seasonal overcrowding and dependence on

winter sports.

To illustrate the diversity further, the following sections present a small selection of tourism

sub-sectors. These examples are intended solely to demonstrate the breadth and variety of the

tourism ecosystem and should not be interpreted as indicating policy priorities or giving

preference to particular forms of tourism.

Business travel

The meetings, incentives, conferences and exhibitions (MICE) industry is traditionally strong

in Europe. Although data on the sector is fragmented, Europe is estimated to account for 26.6%

of global business travel expenditure in 202514. According to Eurostat, professional trips

represented more than 10% of all tourism trips made by EU residents in 202515, but accounted

for 14% of total tourism expenditure, corresponding to EUR 81.3 billion16. Most business trips

are domestic and short, lasting no more than three nights. Despite its relatively small share of

trips, business travel is a high-value segment, with accommodation accounting for the largest

share of expenditure, followed by food and beverage services, and air transport. Europe’s

competitiveness in this field is reflected in cities such as Lisbon, Paris, Barcelona and Vienna

leading the global rankings for hosting international business events in 202517.

Business travel can also drive greener practices across the tourism value chain. Corporate

procurement standards and managed travel programmes have the scale to influence suppliers

and accelerate the uptake of safer, more efficient and more sustainable practices. For example,

the Global Business Travel Association's Sustainable Procurement Standards18 provide an

open-source library of sustainability criteria to support the selection and assessment of business

travel suppliers.

Best practices in the sector suggest designing business events as full experiences, integrating

local culture, hospitality and destination identity while creating lasting benefits for host

communities. This requires close coordination between destinations, venues, policymakers,

and industry stakeholders. Improving business mobility, including through more efficient visa

procedures, secure digital processes and facilitated travel for trusted travellers, can further

strengthen Europe’s attractiveness for international business events.

13 European Commission, EU Tourism Dashboard, “Socio-economic vulnerability” indicator, 2025 data,

accessed November 2026. 14 Global Business Travel Association (GBTA), Business Travel Index Outlook, August 2026. 15 Eurostat, Expenditure by duration, purpose, main destination of the trip and expenditure category, accessed

November 2026. 16 Eurostat, ‘Trips by purpose’, Eurostat Data Browser, accessed November 2026. 17 International Congress and Convention Association (ICCA), ICCA GlobeWatch 2025, accessed November

2026. 18 GBTA Foundation, Sustainable Procurement Standards (2024), accessed November 2026.

9

Example: Carbon-free business events

The EU-funded project BE-FUTURE included the Net Zero Carbon Events initiative in its

compilation of best practices on the business events industry19. Led by the Joint Meetings

Industry Council, the projects brings together nearly 700 organisations from 60 countries to

eliminate carbon emissions in the industry by involving the entire ecosystem, from venue

operators and organisers, to exhibitors and service providers20.

Silver tourism

Silver tourism refers to travel and tourism activities undertaken by older people, typically those

aged 55, 60 or 65 and above, depending on the definition used. The population of older people

(aged 65 years and over) represented 22% of the EU population on 1 January 2025, or over 99

million persons21. Europeans are living longer than ever before, with life expectancy at birth

reaching 81.5 years in 202422, reflecting improvements in healthcare, living standards and

social conditions. By 2050, nearly one in three EU residents will be 65 or older23, compared to

just above one in five today. Globally, about one in six people will be aged 60 years or over by

203024.

Population ageing presents certain economic and social challenges, from labour shortages and

strained public budgets, to pressure on care, education and training systems and regional

cohesion. At the same time, these shifts also bring opportunities. One example is the growing

longevity economy which is unlocking new markets for products, services and innovations

designed specifically for older citizens, creating new avenues for economic growth and job

creation. The longevity economy can also drive innovation in healthcare, technology and

financial services. These opportunities extend to tourism.

Silver tourism encompasses a wide range of tourism experiences, including wellness, medical25

and accessible tourism, as well as cultural, nature-based, gastronomic and active tourism. An

important characteristic is that many older travellers can travel outside peak holiday periods

and often for longer stays, creating opportunities to reduce seasonality and support more

balanced tourism flows. This can help diversify tourism demand throughout the year and

improve the resilience of destinations, particularly those affected by strong seasonal

fluctuations.

Indeed, population ageing is expected to fuel further growth in silver tourism. According to a

study from the European Parliament, tourism expenditure by the 55+ population is projected

19 BEFuture, Compilation of Best Practices on the Business Events Industry, September 2024. 20 Net Zero Carbon Events, ‘Net Zero Carbon Events: An Industry Initiative to Address Climate Change’,

accessed November 2026. 21 Eurostat, ‘Population structure and ageing’, Statistics Explained, accessed November 2026. 22 Eurostat, ‘Mortality and life expectancy statistics’, Statistics Explained, accessed November 2026. 23 Eurostat, ‘Population projections in the EU’, Statistics Explained, accessed November 2026. 24 United Nations, Department of Economic and Social Affairs, Population Division, World Population

Prospects 2024, ‘Probabilistic Projections: Population Aged 60 and Over’ (2024), accessed November 2026. 25 Simonas Gaušas et al., Research for TRAN Committee: Role of the Longevity Economy in the Tourism

Sector, European Parliament, Policy Department for Transport, Employment and Social Affairs, January 2025.

10

to nearly double by 2040, reaching EUR 369.5 billion26. The study also highlights wider social

benefits, including reducing isolation and fostering personal and community well-being.

Silver tourism requires destinations, transport providers and tourism businesses to improve

accessibility, remove physical and digital barriers, increase safety, invest in staff training and

strengthen the effective application of passenger and consumer rights. More inclusive tourism

benefits not only older visitors but also persons with disabilities, families with young children

and residents through improvements to transport, public spaces and services.

Rural tourism

Rural tourism can be a powerful driver of economic diversification, job creation and the

maintenance of local services in rural areas. A large share of tourism already takes place in

rural areas.27 In 2025, rural areas accounted for 41.6% of beds in accommodation in the EU28

and around 31.6% of nights spent.29 The importance of tourism for some rural regions is

considerable: even in 2021, when tourism was still affected by the COVID-19 pandemic,

predominantly rural regions such as Bolzano-Bozen and Istarska županija recorded 23.8

million and 21.7 million nights respectively, while several predominantly rural regions in

France exceeded 10 million nights30. Following the pandemic, demand for tourism in rural and

less densely visited destinations increased, reflecting visitors’ growing interest in nature,

outdoor activities and authentic local experiences. At the same time, digitalisation, particularly

the growth of online booking platforms, has improved the visibility and accessibility of rural

tourism businesses, enabling them to reach wider markets.

As recognised in the European Commission’s Long-term Vision for the EU's Rural Areas, its

accompanying Rural Action Plan and the Rural Pact31, rural tourism can complement other

economic activities and contribute to local income, employment and entrepreneurship. It can

also help distribute visitor flows more evenly throughout the year and across wider

geographical areas, reducing seasonality and supporting more balanced territorial

development. When developed sustainably and in close cooperation with local communities,

rural tourism can strengthen cultural and gastronomic heritage, preserve traditional skills and

products, retain value and support economic diversification, and improve the attractiveness and

resilience of rural areas. The updated Rural Action Plan is being prepared, as committed in the

Vision for Agriculture and Food. As part of the Rural Pact, a community group on rural tourism

was launched, coordinated by RuralTour, the Natural Resources Institute Finland (Luke), the

Committee of the Regions and UN Tourism, and a number of good practices have been

published. The EU CAP Network Database32 provides a wide range of successful projects,

26 Simonas Gaušas et al., Research for TRAN Committee: Role of the Longevity Economy in the Tourism

Sector, European Parliament, Policy Department for Transport, Employment and Social Affairs, January 2025. 27 European Commission, ‘A Long-term Vision for the EU’s Rural Areas – Towards Stronger, Connected,

Resilient and Prosperous Rural Areas by 2040’, June 2021. 28 Eurostat, Establishments, bedrooms and bed-places in tourist accommodation, by degree of urbanisation and

coastal/non-coastal area, accessed November 2026. 29 Eurostat, Establishments, bedrooms and bed-places in tourist accommodation, by degree of urbanisation and

coastal/non-coastal area, accessed November 2026. 30 European Commission, ‘Embracing Rural Tourism: A Relevant Choice’, Rural Pact Community Platform,

July 2023. 31 European Commission, ‘A long-term vision for the EU’s rural areas’, June 2021, accessed November 2026. 32 European Commission, ‘Welcome to the EU CAP Network!’, EU CAP Network, accessed November 2026.

11

including LEADER projects, funded by CAP interventions and focusing on tourism initiatives

in rural areas.

Example: Quinta da Moscadinha, Madeira33 – go off the main route to meet rural

community

Rural tourism offers opportunities to diversify tourism beyond established hotspots, while

supporting local economies, cultural heritage and community engagement. EU support,

including through LEADER under the Common Agricultural Policy (CAP), helps rural

businesses and communities develop tourism experiences based on local assets.

Quinta da Moscadinha, located in Madeira, offers accommodation in a traditional quinta

alongside experiences that connect visitors with the surrounding rural community. These

include guided walks, visits to local taverns and opportunities to discover Madeiran cider-

making traditions. The project received EU support through the local LEADER action group.

Sport, active and outdoor tourism

As recognised in the 2026 Council conclusions on sport tourism as a contributor to sustainable

development34, sport tourism covers tourism activities in which travel is motivated either by

participation in sport or physical activity, or by attendance at or observation of sporting events.

The two are often closely linked, with major sporting events encouraging participation in sport

and recreation before or after the event itself. Sport tourism has become a significant part of

the global tourism economy, estimated at around EUR 585 billion or 10% of the global tourism

market, with Europe accounting for around 38% of global sport tourism revenues in 202235.

Europe offers a particularly diverse sport tourism ecosystem, ranging from winter sports,

hiking, cycling and mountaineering to golf, sailing, kayaking, diving and other water sports.

This is supported by an extensive network of recreational routes and infrastructure, including

EuroVelo, European Greenways and European long-distance hiking trails, which contribute to

sustainable mobility, cross-border connectivity and the attractiveness of destinations.

Furthermore, Europe's diverse sporting offer, from spectator events in football, cycling, rugby

and athletics to participatory events such as marathons, attracts visitors throughout the year and

can help diversify tourism demand beyond traditional peak seasons, while supporting local

economies.

Building on the social, cultural and health-enhancing value of sport, sport tourism can serve as

a strategic instrument for sustainable and long-term local and regional development. It

contributes to economic activity across a wide range of sectors, including accommodation,

transport, retail and hospitality, while supporting quality employment and extending visitor

flows beyond traditional tourism hotspots and peak seasons. When planned responsibly and

proportionately, it can foster territorial cohesion, promote and protect natural and cultural

heritage, and strengthen the resilience of destinations.

33 European Commission, ‘Quinta da Moscadinha’, EU CAP Network, accessed November 2026. 34 Council of the European Union and Representatives of the Governments of the Member States, ‘Conclusions

on Sport Tourism as a Contributor to Sustainable Development’, Official Journal of the European Union, June

2026. 35 European Parliament Research Service, Sports tourism: A strategic tool for sustainable and balanced EU

tourism, January 2026.

12

Sporting events, in particular, can create lasting economic, social and environmental legacies

by increasing participation in sport, strengthening community identity, improving

infrastructure and raising the international visibility of host destinations. They can also

accelerate the transition towards more sustainable tourism through integrated mobility

planning, circular event management and closer cooperation between tourism, transport and

sport stakeholders.

Furthermore, active and adventure tourism, represents a growing segment in Europe, bringing

benefits to local communities and potential for developing lesser-known destinations. The

economic significance of cycling tourism was already evident in 2012: according to a study of

the European Parliament on cycling tourism, the latest data available36, there were an estimated

2,295 million cycle tourism trips in Europe, with a value of EUR 44 billion per year.

River cruise tourism

Inland waterways are a strategic asset for sustainable and ‘slow’ tourism, combining transport,

regional development, culture, and environmental objectives, with strong economic and

international appeal. Tourism transport modes along rivers and inland waterways include

sightseeing boats, river liners, barge hotels, rental boats, private yachting and ecotourism

products like electric rental boats. Cooperation with DMOs and regions is essential to improve

visitor experience, diversify destinations, and better balance tourism flows. The sector

highlights key challenges that include climate impacts (e.g. drought), regulatory issues (e.g.

licence recognition), and uneven tourism development across waterways.

Social tourism

Social tourism covers tourism-related activities aimed at encouraging and supporting

participation in tourism by economically weak or otherwise disadvantaged groups in society37.

It aims to address situations of “tourism poverty” resulting from a lack of financial means or

personal circumstances, including mental or physical conditions, that make participation in the

overall tourism offer difficult38. These barriers are often interrelated and may reinforce one

36 European Parliament, Policy Department B: Structural and Cohesion Policies, The European Cycle Route

Network EuroVelo – Challenges and Opportunities for Sustainable Tourism (Vol. 1: Study; Vol. 2: Flyer),

August 2012. 37 Walter Hunziker, Sozialtourismus (1951), cited in Scott McCabe and Guanghui Qiao, ‘A Review of Research

into Social Tourism: Launching the Annals of Tourism Research Curated Collection on Social Tourism’, 85

Annals of Tourism Research, article 103103, November 2020. 38 European Economic and Social Committee, ‘Opinion of the European Economic and Social Committee on

Social Tourism in Europe’, December 2006.

Example: Voies Navigables de France (VNF)

VNF promotes more sustainable tourism along France’s inland waterways by combining

greener navigation with cycling and walking opportunities. Its activities include:

• Close collaboration with relevant local authorities to operate and manage cycling lanes.

• Development of VNF’s properties to build accommodations for cyclists.

• Supporting the decarbonisation of inland navigation through cleaner vessel propulsion

and onshore electricity supply.

Progress can be measured against the number of fleet engine replacements and retrofits, new

infrastructures for onshore power supply, and additional availability of cycling lanes.

13

another. Closely linked to, and often associated with transport poverty39, a lack of access to

tourism may have an impact on social inclusion, health and well-being, personal development

and education.

Europe has a rich tradition of social tourism, organised by public authorities at local, regional

and national level and by trade unions, religious organisations, businesses and civil society.

Social tourism can contribute to more balanced territorial development, as facilities are

frequently located in less touristic areas and may operate outside the main tourism season. This

supports local employment and economic activity, including for workers with special needs

and other disadvantaged groups.

Example: Socio-economic dimension of social tourism

The Montreal Declaration of the International Social Tourism Organisation (ISTO)40 stresses

the positive societal dimension of social tourism, incudling social inclusion, participation,

education and respect of host communities, while recognising its contribution to tourism

growth, territorial development, skills and employment. It also sets out concrete

recommendations for governments and tourism stakeholders, including on balanced tourism

development.

Health and wellness tourism

Europe offers a large variety of health-related tourism services, ranging from advanced medical

centres serving international patients to established rehabilitation and prevention healthcare

facilities based on thermal water or coastal and mountain climates. These offers exist across

the continent, many with a long history.

In line with a 2017 study from the EP41, health tourism covers three pillars: medical, spa and

wellness tourism. People may travel for medical treatment; they may seek well-being and

relaxation or curative treatments. Often, these tourism segments may be connected in some

specialised destinations or sought by customers in combination. In addition, more recent

segments include offers like digital detox destinations.

The economic impact of health tourism is difficult to establish. The European Parliament study

of 2017 estimates it to represent around 5% of general tourism in the then 28 EU Member

States. It is seen as a growth market, not least given the EU’s aging population and increased

available income. 42

39 Commission Recommendation (EU) 2025/1021 of 22 May 2025 on transport poverty: ensuring affordable, accessible and fair mobilityC/2025/3068, Official Journal of the EU, May 2025; European Commission,

Factsheet Transport Poverty in the EU, May 2025.40 International Social Tourism Organisation (ISTO), Montreal Declaration: Towards a Humanist, Social Vision

of Tourism; Aubagne Addendum; Brussels Addendum, October 2024. 41 Tomas Mainil, Eke Eijgelaar, Jeroen Klijs, Jeroen Nawijn and Paul Peeters, Research for TRAN Committee –

Health Tourism in the EU: A General Investigation, European Parliament, Policy Department for Structural and

Cohesion Policies, June 2017. 42 Tomas Mainil, Eke Eijgelaar, Jeroen Klijs, Jeroen Nawijn and Paul Peeters, Research for TRAN Committee –

Health Tourism in the EU: A General Investigation, European Parliament, Policy Department for Structural and

Cohesion Policies, June 2017.

14

The EU has a very long-established tradition in health tourism, and a corresponding large offer.

Typically, health tourism has lower seasonal dependencies, with year-long destinations that

sustain and help rebalance tourism flows. Often located in remote regions, destinations depend

on good transport connectivity. Accessibility is of prime importance both for persons requiring

medical attention, but also regular visitors aiming for wellness and spa treatments.

Example: European Spa Association (ESPA)

ESPA represents over 1,400 medical spas and health resorts as well as facilities for treatment,

prevention, rehabilitation, and health and wellness tourism in Europe. The related European market

contains approximately 10,000 facilities according to ESPA. The industry employs directly and

indirectly around 850,000 people and has an annual turnover of approximately 50 billion euros. This

means that the European facilities are not only an essential part of national and European health services

but are also important economic contributors and offer employment43.

Cultural tourism

Cultural tourism is a driver of economic growth and a bridge between cultures, contributing to

the development of European regions. Europe’s cultural heritage44 is a valuable resource for

tourism, education, employment and sustainable development. Cultural tourism may include

visiting heritage and architectural sites, museums and other cultural spaces, attending

performances, festivals and events, or participating in cultural activities, such as learning

experiences and workshops. Cultural tourism can help diversify tourism flows beyond

established destinations and peak seasons, support rural and peripheral areas, generate revenues

for heritage conservation and create opportunities for local businesses, artisans and cultural and

creative sectors. At the same time, its development needs to be managed carefully to avoid

excessive pressure on heritage assets, local communities and the environment.

Sustainable cultural tourism45 is an important component of regional and macro-regional

development strategies. Tourism can facilitate access to culture and cultural heritage, but it can

contribute to overcrowding, cultural appropriation and the loss of authenticity, while placing

pressure on local communities and heritage assets. The UN Tourism Framework Convention

on Tourism Ethics46 stresses that “tourism policies and activities should be conducted with

respect for the artistic, archaeological and cultural heritage, which they should protect and pass

on to future generations; particular care should be devoted to preserving monuments, worship

sites, archaeological and historic sites as well as upgrading museums which must be widely

open and accessible to tourism visits”.UNESCO, through its World Heritage Centre, offers

tools and support for sustainable cultural tourism development, noting that “cultural tourism is

one of the largest and fastest-growing global tourism markets. Culture and creative industries

are increasingly being used to promote destinations and enhance their competitiveness and

attractiveness”47.

43 European Spas Association (ESPA), ‘Spa Medicine’, accessed November 2026. 44 European Commission, ‘Cultural heritage’, Culture and Creativity, accessed November 2026. 45 European Commission, ‘Sustainable cultural tourism’, Culture and Creativity, accessed November 2026. 46 World Tourism Organization (UNWTO), Framework Convention on Tourism Ethics, UNWTO, Madrid,

2020, accessed November 2026. 47 UNESCO World Heritage Centre, ‘World Heritage and Sustainable Tourism Programme’, accessed

November 2026.

15

Sustainable cultural tourism places cultural heritage and local communities at the centre

of decision-making. Involving local communities and other stakeholders helps ensure that

tourism benefits residents and supports heritage conservation. This calls for integrated

governance models bringing together local and regional authorities, heritage managers,

destination management organisations, residents and civil society, cultural and creative sectors,

transport providers, and education and youth stakeholders. Its objective is to balance cultural,

social, environmental and economic benefits, rather than focusing solely on visitor numbers,

while ensuring that cultural experiences are accessible and inclusive, including for young

people and persons with disabilities.

The 2025 Commission Communication on a Culture Compass for Europe48 recognises

sustainable cultural tourism as a catalyst for heritage protection, social cohesion, environmental

sustainability and economic competitiveness. The 2019 report on sustainable cultural tourism49

by the Open Method of Coordination group of Member State experts also highlighted the

importance of cooperation between tourism and cultural stakeholders, community participation

and integrated approaches to tourism and heritage management.

The European Capitals of Culture (ECoC)50 initiative contributes to the cultural attractiveness

of European cities and regions, while encouraging cultural participation and longer-term local

development. The Commission's proposal for the ECoC action for 2034-2047 explicitly seeks

to strengthen synergies with sustainable tourism. The forthcoming proposal for a European

Heritage List also offers an opportunity to reinforce links between cultural heritage and

sustainable tourism, in line with the objectives of the EU Sustainable Tourism Strategy.

The European Heritage Label (EHL)51 initiative highlights heritage sites that have played a

significant role in European history, integration and the promotion of common European values

as drivers of education, tourism, and community pride. Often located outside major tourist

hubs, EHL sites have a growing relevance for sustainable cultural tourism, notably for visitors

seeking meaningful, values-driven and educational travel experiences with a European

dimension. The Commission will continue to support EHL sites to position themselves as

exemplars of high-value, educational, inclusive and low-impact cultural visitation.

DiscoverEU52 is an especially promising instrument for educational, inclusive and sustainable

cultural tourism because it already links youth, mobility and Europe, encouraging young people

to explore Europe's cultural heritage through more sustainable modes of transport. It has strong

synergies with other EU actions, notably the European Heritage Label. The Commission is

using the DiscoverEU Culture Routes to promote lesser-known destinations, to incentivise off-

season travel, and to reward the completion of sustainable train-based youth cultural itineraries

linking heritage, learning and responsible travel. Together with the European Capitals of

Culture and the European Heritage Label, DiscoverEU can also contribute to promoting

48 European Commission, Communication from the Commission to the European Parliament, the Council, the

European Economic and Social Committee and the Committee of the Regions: A Culture Compass for Europe,

COM(2025) 785 final, November 2025. 49 European Commission, Directorate-General for Education, Youth, Sport and Culture, Sustainable Cultural

Tourism, December 2019. 50 European Commission, Proposal for a Decision of the European Parliament and of the Council renewing a

Union action for the European Capitals of Culture for the years 2034 to 2047 and repealing Decision No

445/2014/EU, COM(2026) 455 final, September 2026. 51 European Commission, European Heritage Label Sites, accessed November 2026. 52 European Commission, DiscoverEU, accessed November 2026.

16

Destination Europe by showcasing the diversity of Europe's cultural heritage, including lesser-

known destinations and experiences.

Example: EU cultural tourism cooperation

The EU-funded IMPACTOUR53 project of twelve partners from nine EU Member States

connected stakeholders and researchers, envisaging new approaches and methods to support

European cultural tourism, reinforce a feeling of belonging, and value minority cultures. The

project covered more than 20 European sites. It worked on an advanced and adaptable

methodology to estimate the impact of cultural tourism on EU regional economic growth and

combine data analytics algorithms with machine learning and AI approaches to improve

policies and actions.

1.2 Measuring tourism flows and impact

The Strategy, this Staff Working Document and the tourism ecosystem more broadly, draw on

multiple sources of tourism data, reflecting the complexity and diversity of the tourism

ecosystem. The public debate often uses values that are not always grounded in clear

methodology or easily understood. For that reason, this chapter first gives an overview of

various approaches to tourism statistics and data, and to calculating its economic and societal

impact.

1.2.1 Data sources and approaches

No single source captures the full complexity of tourism at European level. Official statistics,

operational dashboards, market intelligence and international comparative data each fulfil

different but complementary functions in supporting evidence-based policymaking. Official

EU tourism statistics are based on Regulation (EU) 692/2011 on Tourism Statistics54. It

requires EU countries to collect, draw up, process and transmit to Eurostat harmonised statistics

on supply and demand in tourism only in terms of capacity of certain types of tourist

accommodation establishments (number of establishments, number of bedrooms, number of

bed places), occupancy of establishments (arrivals, nights spent) and national demand for

tourism (trips made by EU residents). Since 2020, Eurostat also receives data directly from

three major short-term rental platforms, allowing to publish statistics on short-term rentals.

Beyond the regulation, Member States tend to have their own policies and other types of

national data. Eurostat’s online database on tourism already incorporates data from other

business statistics (Structural Business Surveys), social statistics (Labour Force Survey), or

environmental statistics. The harmonisation and coordination of data gathered by the European

Statistical System may come with a trade-off in terms of publication delay. Together, these

official data sources also provide the basis for measuring tourism sustainability. A first set of

harmonised European indicators on the sustainability of tourism was released in July 202655.

53 IMPACTOUR, ‘Improving Sustainable Development Policies and Practices to Access, Diversify and Foster

Cultural Tourism in European Regions and Areas’, accessed November 2026. 54 European Parliament and Council of the European Union (2011). Regulation (EU) No 692/2011 of the

European Parliament and of the Council of 6 July 2011 concerning European statistics on tourism and repealing

Council Directive 95/57/EC. Official Journal of the European Union, July 2011. 55 Eurostat, ‘Information on data – Tourism’, accessed November 2026.

17

The EU Tourism Dashboard56 complements European official statistics by bringing together a

broader set of descriptors and indicators of EU’s tourism destinations, across a number of

policy relevant domains: environment, socioeconomicresilience, and digitalisation of tourism.

Combining different methodologies and data sources, it provides a user-friendly and interactive

monitoring tool at EU, national and regional level, allowing users to compare destinations over

the years across a range of tourism-related indicators. Depending on the indicator, data may be

available at levels as granular as Local Administrative Units (i.e. municipalities) and NUTS3

regions (i.e. districts or provinces). For some indicators, data is only available at Member State

level. The EU Tourism Dashboard is managed by the European Commission’s Directorate-

General for Mobility and Transport (DG MOVE) and developed by the Joint Research Centre

(JRC).

The Industrial Ecosystems Dashboard57, developed by the Directorate-General for Internal

Market, Entrepreneurship and SMEs (DG GROW), provides comparative data for 14 major

industrial ecosystems, tourism being one of them. This Dashboard provides regularly updated

economic data (turnover, value added, employment, vacancies, enterprise size, workforce

demographics), compiled and presented through its own unique methodology. The presentation

of the relative weight of the main sectors of economic activity in the EU offers a useful

perspective, not least for policymaking and political prioritisation.

EU-funded projects such as DEPLOYTOUR58 and D3HUB59 contribute to strengthening

Europe’s tourism data landscape. They support the development of the Common European

Tourism Data Space and explore approaches for sharing, analysing and using tourism data by

businesses, destinations and public authorities. The European Commission also supports the

European Travel Commission (ETC) on its market intelligence on long-haul source markets,

traveller sentiment, consumer behaviour and market trends. Its research can be used both for

destination marketing and strategic policy development.

The European Commission also cooperates closely with international organisations, notably

the OECD and the United Nations and its specialised agencies. The EU participates in the

OECD’s Working Party on Tourism Statistics and financially supports specific OECD work,

including tourism-related reporting and statistical capacity-building60. The World Tourism

Organization (UN Tourism)61 is the leading global source of tourism statistics and plays an

important normative role in developing international statistical standards, definitions and

sustainability measurement frameworks, like the Tourism Satellite Accounts. Many private

operators collect and analyse tourism data using their own methodologies. While main findings

may be openly shared and disseminated, full reports and detailed analysis are typically

personalised and sold to business clients, researchers and destinations, hence restricting

comparability.

56 EU Tourism Dashboard, accessed November 2026. 57 European Commission, European Monitor of Industrial Ecosystems, accessed November 2026. 58 DEPLOYTOUR, Deployment of the European Tourism Data Space, accessed November 2026. 59 D3HUB Competence Centre, Data-Driven Destinations Hub, accessed November 2026. 60 OECD, On-Line Guide to OECD Intergovernmental Activity, accessed November 2026; OECD,

Strengthening the Evidence Base for a Sustainable Tourism Future in Malta: A Toolkit to Operationalise a

Tailored Set of Sustainability Indicators, January 2025. 61 UN Tourism, UN Standards for Measuring Tourism, accessed November 2026.

18

1.2.2 Economic weight

If there is general understanding that tourism has considerable economic weight, the exact

extent of this weight is complex to establish, mainly because measurement methodologies

differ across countries and because the attribution of certain activities to tourism is difficult to

assess (for instance, services catering both to residents and visitors). Measurements may refer

to direct, indirect or induced economic impact of tourism.

The most rigorous exercise to assess the direct economic value of tourism at EU level are the

Tourism Satellite Accounts for Europe (TSA)62. However, their voluntary and experimental

character makes them slow and incomplete (released by Eurostat in March 2026 for the

reference year 2022, with 24 Member States participating). Inclusion of TSA is expected in the

upcoming revision of the Tourism Statistics Regulation.

Estimating tourism Gross Domestic Product (GDP) is challenging because tourism is not a

separate industry in national accounts, but is instead defined by the consumer’s status and

behaviour. The same product (including accommodation, transport, restaurants, retail, culture

and recreation) can therefore be tourism-related or non-tourism-related depending on who

purchases it. Compilers must distinguish visitors from residents and other travellers, separate

domestic production from imports, allocate expenditure among products and industries,

account for package travel and intermediary margins, and estimate informal or poorly recorded

activity. GDP also requires allocating taxes on products and imports, less subsidies, to tourism

consumption; this is complicated by different VAT rates, exemptions, excise duties and the

fact that taxes are not always proportional to tourism output63.

Gross value added (GVA) is used throughout this Staff Working Document as the principal

measure of tourism’s economic contribution, in line with Eurostat practice and the

internationally acknowledged TSA methodology. Unlike Gross Domestic Product (GDP),

GVA can currently be estimated more consistently for tourism activities through existing

statistical methodologies, by identifying the share of each industry’s production attributable to

visitor demand and applying that share to the industry’s existing value added64. Estimates of

the share of tourism activity on total GVA may differ depending on the accounting method and

on whether direct, indirect or induced effects are taken into account. Below are highlighted

four progressively broader approaches to measure the economic weight of tourism:

• The narrowest approach expresses the direct contribution, measuring the value added

generated by serving visitors, which stood at around EUR 517 billion, or 3.6% of EU

GVA, in 2022, the last year available from Eurostat65, and reaching 4.1% in 2025

according to estimates from the Joint Research Centre66. It should be noted that the

reference year 2022 was still affected by the aftermath of the COVID-19 pandemic; in

2019, tourism direct GVA was estimated at EUR 572 billion, or 4.5% of EU GVA67.

Each euro of direct tourism value added is estimated to generate a further EUR 0.61 of

62 Eurostat, Tourism Satellite Accounts in Europe – 2026 edition, March 2026. 63 United Nations, World Tourism Organization, European Commission and OECD, Tourism Satellite Account:

Recommended Methodological Framework 2008, accessed November 2026. 64 Tourism direct GVA = ∑ Tourism share of outputi x GVAii , while Tourism Direct GDP = TDGVA +

tourism-related taxes on products and imports − tourism-related subsidies on products and imports. 65 Eurostat, Tourism satellite accounts on Europe, March 2026. 66 EU Tourism Dashboard, ‘Economic impacts of tourism’, accessed November 2026. 67 Eurostat, Tourism: €572 billion gross value added in the EU, April 2023.

19

value added in upstream sectors such as transport, retail and agriculture, illustrating the

strong interconnections between tourism and the wider economy68.

• Another approach to measure the economic size of tourism considers tourism

industries, including activities serving both visitors and residents. These comprised 2.7

million enterprises employing 13.4 million people, accounting for 8.3% of business

economy employment and 4.9% of its value added in 202369.

• The broader tourism ecosystem approach accounts for approximately EUR 866 billion,

7.3% of EU value added, 4.6 million companies and more than 20 million jobs in 2025.

This ecosystem measure extends beyond tourism’s direct contribution and cannot be

fully reproduced from publicly available data; it is therefore presented as an estimate70.

The Strategy uses the broadest approach to measure tourism weight as its headline figure. It

builds on the direct impact taken from Tourism Satellite Accounts and adds the estimated

indirect and induced economic effects of tourism expenditure, using a peer-reviewed method71.

The indirect effects originate upstream from the supply chain supporting the tourism sector,

and the induced effects stem downstream from the re-spending of income earned through

tourism-related activities on other goods and services in the economy. Based on a recent

implementation of this method, the Joint Research Centre estimates a total economic impact of

10.1% of EU GVA in 2025. 72 The following table summarises these measures for ease of

reference:

Table 2 – Scoping tourism economic weight

Measure Scope Reference

year73

Estimate

Direct

contribution

Value added generated by

serving visitors (Tourism

Satellite Account)

2022 €517 billion (3.6% of EU

GVA)

Tourism

industries

Tourism industries covered by

official structural business

statistics

2023 €515 billion (4.9% of

business economy value

added); 2.7 million

enterprises; 13.4 million

jobs

Tourism

ecosystem

Broader tourism ecosystem

estimate used in the Strategy

2025

(estimate)

€866 billion (7.3% of EU

GVA); 4.6 million

companies, >20 million

jobs

68 OECD, OECD Tourism Trends and Policies 2026, July 2026. 69 Eurostat, Tourism industries – economic analysis, March 2026, . 70 European Commission, Industrial Ecosystems Indicators Dashboard, accessed November 2026. 71 Figini, P., Patuelli, R., Curtale, R. and Batista e Silva, F., ‘Give me a number. Evaluating economic impacts of

tourism’, Current Issues in Tourism, November 2025. 72 EU Tourism Dashboard, ‘Economic contribution of tourism’, accessed November 2026. 73 The different reference years reflect the availability of the underlying datasets. Official tourism statistics,

Tourism Satellite Accounts and ecosystem estimates are compiled using different methodologies and

publication cycles. The estimates are therefore not directly comparable.

20

Total impact Value added generated by

serving visitors, supply chain

supporting the tourism sector

and re-spending of income

earned through tourism-

related activities

2025

(estimate)

10.1% of EU GVA

Tourism operates as a value chain rather than a single industry. It is composed overwhelmingly

of small firms. Around 99% of tourism enterprises are small or medium-sized, and most are

micro-enterprises. The tourism value chain extends across accommodation and food services,

travel agencies and tour operators, online booking platforms, passenger transport, visitor

attractions, and culture and heritage. Accommodation and food services account for around

70% of tourism enterprises, comprising approximately 15% in accommodation and 54% in

food and beverage services in 202374. The remainder is spread across passenger transport,

attractions and recreation, and travel services. This structure explains why EU tourism policy

relies primarily on coordination, cooperation and support measures rather than sector-specific

regulation, and with EU competences reflected as such in Article 195 of the Treaty.

Tourism's economic importance varies considerably across the Union. It accounts for a

particularly large share of economic activity and employment in several Member States,

including Greece (23% of the business economy employment), Cyprus (16%) and Malta

(13%). In many other Member States, tourism nevertheless remains an important regional

employer and source of economic activity, even where its national share is lower75.

Taken together, tourism represents one of the EU’s largest industrial ecosystems. Its economic

impact extends well beyond tourism businesses themselves through strong linkages with

transport, mobility, retail, culture, construction, agri-food and the digital economy.

74 Eurostat, Tourism industries – economic analysis, March 2026. 75 Eurostat, Tourism Industries – Economic Analysis, March 2026. For example, Finland: 6.4%; Poland: 3.8%

of business economy employment. .

21

Chart 1 – Comparative weight of major EU industrial ecosystems

Source: Industrial Ecosystems Indicators Dashboard76

1.2.3 Tourism demand, distribution and seasonality

Europe remains the world's leading tourism region, accounting for around 810 million

international tourist arrivals in 2025, more than half of global cross-borders arrivals (52%). The

EU represents the largest tourism market within Europe, welcoming almost 600 million

international tourist arrivals (39%)77. EU tourist accommodation establishments recorded 3.14

billion nights in 2025, following 3.02 billion overnight stays in 202478, the first year to exceed

the three billion threshold. In 2024, tourism demand in the EU was almost evenly split between

domestic visitors (residents staying within their own country) and international visitors

(arriving from another country, whether another EU Member State or a non-EU country), with

domestic tourism accounting for 51.1% of overnight stays and international tourism for

48.91%. International demand was itself predominantly European: 60.9% of international

overnight stays originated from other EU Member States, while a further 21.3% came from

other European countries not part of the EU. Visitors from the rest of the world accounted for

17.2% of international nights, including 7.7% from North America and 5.3% from Asia. This

illustrates both the importance of the Single Market for tourism and the continued relevance of

long-haul markets for Europe's international competitiveness.

76 European Commission, Industrial Ecosytems Indicators Dashboard, accessed November 2026. 77 UN Tourism, World Tourism Barometer, Vol. 24, Issue 2 (May 2026), Statistical Annex, “International

tourist arrivals by (sub)region”, May 2026. 78 Eurostat, Tourism statistics – annual results for the accommodation sector, accessed November 2026.

22

Chart 3: Nights spent in accommodation in the EU by origin of the visitor (2025, millions)

Source: Eurostat79

Tourism is also an important export sector for the EU. This can be measured in two

complementary ways. On a global receipts basis, the EU earned 23.5% of worldwide

international tourism receipts in 2024, of which 15.9% originated from travel within the EU

and 9.9% from visitors arriving from outside the Union80. On an external trade basis, extra-EU

exports of travel services amounted to around EUR 205 billion in 2025, representing 10.9% of

total extra-EU exports of services81. These indicators measure different aspects of tourism’s

international economic contribution but both confirm the economic value of tourism for the

EU.

While tourism demand continues to grow, it remains highly concentrated geographically and

seasonally. In the third quarter of 2025, the twenty most visited NUTS2 regions were located

in just six Member States (France, Spain, Italy, Greece, Portugal and Croatia)82. Within

destinations, visitor flows are often even more concentrated. Tourism demand is also strongly

seasonal, with visitor numbers peaking during the summer months, particularly in coastal

destinations. On average across the EU, 42% of all nights spent are concentrated in the three

most popular months at each tourism destination, reaching more than 50% in some EU

countries83. This pattern is reflected across EU economies (although capital cities tend to

experience more stable demand and some regions have their high season in winter), where

around one third of tourist nights occur during the two busiest months of the year (up to 54%

in Croatia, 43% in Bulgaria and 42% in Greece)84.

79 Eurostat, Nights spent in tourist accommodations up 4% in 2025, October 2026; Eurostat, Record Number of

Tourism Nights in 2024 in the EU, October 2025. 80 Eurostat, Key figures on the EU in the world – tourism earnings, August 2025 (updated with 2024 data). 81 Eurostat, International trade in services by type of service, January 2026 (updated with 2025 data). 82 Eurostat, Tourism nights booked via platforms hit nearly 1 billion (April 2026), accessed in November 2026. 83 EU Tourism Dashboard, ‘Tourism seasonality’, accessed November 2026. 84 Eurostat, Seasonality in the tourist accommodation sector, September 2025.

23

High concentrations of visitors in specific places and periods can put pressure on housing,

transport, public services, cultural heritage and natural resources, while tourism infrastructure

remains underused during the rest of the year. Conversely, many rural, inland and peripheral

destinations continue to have significant untapped tourism potential. Managing tourism

demand more evenly across destinations and throughout the year has therefore become a central

objective of tourism policy at destination, national and European levels.

The territorial and seasonal concentration of tourism is compounded by another vulnerability:

many destinations rely on too few markets for their foreign tourism demand. On average across

the EU, 21% of all nights-spent by foreign visitors come from only three countries of origin85.

This market concentration, combined with the territorial and seasonal concentration of tourism

demand, makes destinations more exposed to shocks and calls for greater diversification.

Chart 4: Share of nights-spent in winter months (December 2024-February 2025) per

region

Source: European Commission, JRC elaboration

85 EU Tourism Dashboard, ‘Dependence on top 3 countries of origin’, accessed November 2026.

24

Although no unique indicator currently exists to measure tourism pressure or overtourism,

work is progressing through the EU Tourism Dashboard and Eurostat’s sustainability

indicators (comprising indicators on tourism density and tourism intensity at regional level), as

well as other initiatives to strengthen the evidence base for destination management and more

balanced tourism development. At the same time, tourism demand continues to evolve. Market

intelligence produced by the European Travel Commission indicates growing interest in

sustainable tourism, authentic local experiences and travel beyond the traditional peak season,

while international long-haul demand continues to increase. These trends create new

opportunities to diversify Europe's tourism offer, strengthen lesser-known destinations and

support more balanced tourism throughout the year86.

1.2.4 Employment

The tourism ecosystem is one of the EU’s largest sources of employment, supporting more than

20 million jobs across the broader tourism ecosystem in 202587. Employment is spread across

a wide range of activities, including accommodation, food services, passenger transport, travel

services, culture, recreation and visitor attractions. As many tourism activities are located

outside major urban centres, the sector also makes an important contribution to employment,

economic cohesion and the vitality of rural, coastal, mountain and outermost regions, as well

as in other destinations facing demographic decline.

Chart 3: Tourism Employment

Source: Industrial Ecosystems Indicators Dashboard

86 European Travel Commission (ETC), Monitoring Sentiment for Intra-European Travel and Long-Haul Travel

Barometer, accessed November 2026. 87 European Commission, Industrial Ecosytems Indicators Dashboard, accessed November 2026.

25

The composition of the workforce in tourism industries differs from that of the wider economy.

It is predominantly female: women accounted for 58% of tourism employment in 2023, against

36% across the wider economy, with the highest shares in travel agencies, tour operators and

accommodation88. Women remain generally underrepresented in management across the EU

economy, holding around 35% of managerial positions in 202489. Tourism also provides

important entry opportunities into the labour market. The workforce is comparatively young,

with 11% of workers aged 15 to 24, compared with 9% across the wider economy.

Working arrangements also differ from those in the wider economy. Part-time work accounts

for around 21% of tourism employment, compared with 15% across the business economy,

while temporary employment contracts account for 21%, against 12%. These characteristics

reflect both the seasonal nature of many tourism activities and the diversity of business models

across the ecosystem.

At the same time, employers across the tourism ecosystem face persistent labour and skills

shortages90. Accommodation and food services recorded a job vacancy rate of around 3% in

early 202691, among the highest of any economic sector and well above the economy-wide

average of about 2%92. Stakeholders also report growing difficulties in attracting and retaining

workers, reflecting demographic change, changing career expectations and increasing demand

for new digital and sustainability-related skills. Addressing these challenges is therefore

essential for the long-term competitiveness and resilience of European tourism.

By supporting employment and entrepreneurship across a wide variety of destinations, tourism

can contribute to maintaining vibrant local communities and creating economic opportunities

in areas affected by depopulation and demographic change. The EU is committed to promoting

equality and gender equality across all sectors, including tourism, as part of its broader values

of non-discrimination, inclusion and equal opportunities. In tourism, this means fostering equal

access to employment, career progression and leadership positions, ensuring fair working

conditions, and preventing discrimination and harassment in the workplace.

Tourism's economic weight, territorial dimension and cross-border nature make it a policy area

where European cooperation can provide clear added value. While tourism development

remains primarily the responsibility of Member States, regions and destinations, many of the

factors shaping the sector, including connectivity, data, sustainability, skills, digitalisation and

crisis preparedness, benefit from cooperation at Union level. These characteristics provide the

context for the Strategy presented in the following chapters.

1.3 Trends and challenges shaping European tourism

European tourism is undergoing profound structural change. Climate change, demographic

developments, technological innovation, geopolitical uncertainty and evolving visitor

expectations are reshaping how, where and why people travel. These trends have been

consistently identified in recent work by the OECD, the European Travel Commission (ETC),

the European Environment Agency (EEA) and the Commission’s Sustainable EU Tourism

88 Eurostat, Tourism industries – employment, May 2024. 89 Eurostat, Women held 35% of managerial positions in 2024, March 2026. 90 HOTREC, Skills and Labour Shortages: A Roadmap for Action, January 2026. 91 HOTREC, Skills and Labour Shortages: A Roadmap for Action, January 2026. 92 Eurostat, Tourism industries – employment, May 2024.

26

project93. While these trends largely originate outside the tourism sector itself, they

increasingly influence the competitiveness, resilience and sustainability of destinations across

Europe.

These transformations are taking place against a backdrop of continued strong tourism demand.

In 2025, EU tourist accommodation establishments recorded 3.14 billion nights, 4.1% more

than in 2024. International demand grew faster than domestic demand, with nights spent by

international visitors increasing by 3.4%, compared with 1.1% for domestic visitors94. Looking

ahead, further growth is expected. UN Tourism forecasts international tourist arrivals

worldwide to reach 2 billion by 2030, compared with around 1.5 billion in 202595. This

continued expansion will create further opportunities for European tourism, while increasing

the importance of effectively managing visitor flows and their impacts on destinations,

infrastructure, natural resources and local communities.

Climate change is already affecting tourism patterns through rising temperatures, more

frequent extreme weather events, wildfires, water scarcity and changing snow conditions, with

implications for destination attractiveness, seasonality and visitor flows. Geopolitical

developments similarly influence tourism demand by affecting traveller confidence, transport

connectivity and the accessibility of international markets. At the same time, demographic

change, including population ageing and depopulation in many rural and remote areas, is

altering both tourism demand and the availability of labour. Digitalisation and artificial

intelligence are transforming the way tourism is marketed, booked and managed, while

changing visitor expectations are increasing demand for authentic, sustainable and personalised

experiences. Recent market intelligence also indicates a gradual shift from volume-based

towards value-based tourism, with increasing demand for authentic experiences, longer stays,

year-round travel and destinations offering strong environmental quality and local identity96.

These trends extend beyond tourism policy and require coordinated responses across multiple

policy areas, including transport, climate, employment, digitalisation and regional

development. They also reinforce the importance of integrated destination management and

stronger cooperation between public authorities, businesses and local communities. The

following section examines how these structural trends translate into concrete challenges for

European destinations.

The trends described above are creating a number of interrelated challenges for destinations,

businesses and public authorities across Europe. Building on the analytical framework

developed under the Sustainable EU Tourism project, these challenges can be grouped into

four interconnected dimensions: economic competitiveness, environmental sustainability,

social sustainability and governance97. While their relative importance varies across

destinations, these dimensions are closely interlinked and require integrated destination

93 OECD, OECD Tourism Trends and Policies 2026, July 2026; European Travel Commission (ETC), Long-

Haul Travel Barometer 3/2026, October 2026; European Environment Agency (EEA), European Climate Risk

Assessment, March 2024; European Commission, Report on the Identification of Key Challenges and Best

Practices, Sustainable EU Tourism: Shaping the Tourism of Tomorrow, September 2024. 94 Eurostat, Another record year for EU tourism in 2025, March 2026. 95 UN Tourism, 50 Years of Tourism: Global Trends and Future Scenarios. Briefing Paper for the 26th UN

Tourism General Assembly, November 2025. 96 OECD, OECD Tourism Trends and Policies 2026, accessed November 2026; European Travel Commission

(ETC), Long-Haul Travel Barometer 3/2026, October 2026. 97 European Commission, Report on the Identification of Key Challenges and Best Practices, Sustainable EU

Tourism: Shaping the Tourism of Tomorrow, September 2024.

27

management supported by coordinated action across different policy areas and levels of

governance.

Economic challenges

Tourism remains characterised by high levels of seasonality, fragmented business structures

and uneven territorial development. Many destinations depend heavily on a limited number of

source markets or tourism products, while others have significant untapped tourism potential.

Small and medium-sized enterprises dominate the ecosystem but often face limited access to

finance, innovation, digital technologies and skilled workers. Increasing productivity,

extending tourism throughout the year, diversifying tourism offers and strengthening the

resilience of local tourism businesses are therefore becoming central objectives of tourism

policy98.

Environmental challenges

Tourism both depends upon and affects Europe's natural environment. Climate change,

biodiversity loss, pressure on water and soil resources, waste generation and transport

emissions increasingly influence destination attractiveness and competitiveness. At the same

time, many destinations seek to reconcile visitor growth with environmental protection and the

preservation of natural and cultural assets. Climate adaptation, decarbonisation, resource

efficiency and biodiversity conservation are therefore becoming integral elements of

destination management99. Natura 2000 protected areas cover large parts of the EU’s territory,

ranging from 9% to 38% of national territory, depending on the country100. While Natura 2000

aims to ensure the conservation of areas of high natural value, they can as well attract tourism

flows, potentially leading to a conservation paradox if visitor flows are not managed

appropriately101.

Social challenges

Tourism can generate employment, entrepreneurship and territorial cohesion, but may also

create pressures on housing, infrastructure and public services including transport where visitor

numbers become highly concentrated. Ensuring that tourism benefits local communities,

provides quality employment, remains accessible to diverse visitor groups and contributes

positively to cultural heritage and local identity is therefore an increasingly important policy

objective. Measuring and improving residents' quality of life and strengthening the social

acceptance of tourism are also becoming key indicators of successful destination

management102.

98 European Commission, Report on the Identification of Key Challenges and Best Practices, Sustainable EU

Tourism: Shaping the Tourism of Tomorrow, September 2024. 99 European Environment Agency (EEA), European Climate Risk Assessment, March 2024; European

Commission, Report on the Identification of Key Challenges and Best Practices, Sustainable EU Tourism:

Shaping the Tourism of Tomorrow, September 2024. 100 EU Tourism Dashboard, ‘Share of protected/designated land (%)’ (2023), accessed November 2026. 101 Seguin, R., Delbar, V., Batista, F. and Mouillot, D., ‘Protected areas shape the distribution of tourism across

rural Europe’, People and Nature, 6(6), pp. 2246–2260, December 2024. 102 European Commission, Report on the Identification of Key Challenges and Best Practices, Sustainable EU

Tourism: Shaping the Tourism of Tomorrow, September 2024.

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Governance challenges

Tourism governance is inherently complex. Responsibilities are distributed across different

levels of government and across many policy domains, while destinations often involve

numerous public and private stakeholders with different objectives. Many of the policies

shaping tourism, including transport, environment, digitalisation, skills and home affairs, fall

outside tourism administrations. Effective destination management therefore depends on

coordination, reliable data, stakeholder participation and long-term planning rather than sector-

specific regulation alone. The growing complexity of tourism also reinforces the need for better

monitoring, shared indicators, crisis preparedness and stronger cooperation between

destinations, Member States and the European Union103.

103 European Commission, Report on the Identification of Key Challenges and Best Practices, Sustainable EU

Tourism: Shaping the Tourism of Tomorrow, September 2024.

29

Chapter 2. The path to the Strategy

Tourism policy in the European Union has traditionally been developed through cooperation

between the European institutions, Member States and stakeholders. This reflects both the

cross-cutting nature of tourism and the Union's supporting competence under Article 195 of

the Treaty on the Functioning of the European Union (TFEU). Accordingly, the Strategy builds

on an extensive process of consultation, dialogue and co-creation, while drawing on a long

tradition of collaborative EU tourism policy.

2.1 The evolving EU policy context

EU tourism policy has evolved progressively over more than four decades. Long before tourism

was recognised as an EU competence, under the Treaties, Member States recognised the added

value of European cooperation on issues such as data, skills, accessibility and environmental

protection. Many of these themes continue to underpin EU tourism policy today.

The Union had already been active in tourism since the 1980s, relying on other competences

conferred by the Treaties104. The Council Resolution of 10 April 1984 on a Community policy

on tourism identified the first areas for European cooperation105. This was followed by Council

Decision 86/664/EEC of 22 December 1986106 establishing a consultation and cooperation

procedure and the Advisory Committee on Tourism, while the Maastricht Treaty (1993)

recognised tourism among the Community’s activities. With the entry into force of the Lisbon

Treaty in 2009, tourism became an explicit area of EU supporting competence under Article

195 TFEU.

Figure 1. Article 195 of the Treaty on the Functioning of the European Union (TFEU)

Source: Consolidated version of the Treaty on the Functioning of the European Union (OJ C 202, 7.6.2016)

Article 195 therefore provides the legal basis for an EU tourism policy centred on supporting

competitiveness, encouraging a favourable environment for the development of tourism

undertakings and promoting cooperation between Member States, while respecting their

104 Estol, J. and Font, X. (2016), European tourism policy: Its evolution and structure, Tourism Management,

Vol. 52, pp. 230–241, accessed November 2026. 105 Council of the European Communities, Council Resolution of 10 April 1984 on a Community policy on

tourism, April 1984. 106 Council of the European Communities, Council Decision of 22 December 1986 establishing a consultation

and cooperation procedure in the field of tourism, December 1986.

30

primary responsibility for tourism development. On this basis, the Union has progressively

developed a strategic framework for tourism, responding to evolving economic, societal and

geopolitical challenges while remaining within its supporting competence. The first policy

framework under the Article 195 competence was the 2010 Commission Communication

Europe, the world’s No 1 tourist destination. The 2020 Communication Tourism and transport

in 2020 and beyond set out the Union’s immediate response to the COVID-19 crisis and the

path to recovery. Building on this, in its Conclusions of 27 May 2021, the Council invited the

Commission and Member States to co-design a European Agenda for Tourism 2030. In

parallel, the Transition Pathway for Tourism (2022), co-created with stakeholders, represented

the first transition pathway developed for an EU industrial ecosystem and identified 27 priority

areas for action. Its implementation has been supported through a voluntary pledge mechanism,

with more than 500 pledges submitted by around 240 organisations by mid-2025,

demonstrating strong stakeholder engagement in the transition of the tourism ecosystem107.

The pledges cover all 27 topics of the Transition Pathway and provide a valuable repository of

practical actions and good practices through the EU Tourism Platform108. Illustrative examples

are presented in the 2023 and 2024 stocktaking reports. The European Agenda for Tourism

2030, endorsed by Member States in the Council Conclusions of 1 December 2022, established

a common framework for cooperation and invited the Commission to report on its

implementation at least every three years.

The political momentum for a stronger European tourism policy has continued to grow. In

2024, the Political Guidelines for the 2024-2029 Commission and the mission letter of

Commissioner Tzitzikostas confirmed tourism as a strategic priority. The Commission started

with preparing a comprehensive EU Strategy for Sustainable Tourism. This direction was

subsequently reinforced by the European Parliament, which adopted a Resolution on

destination management and regional tourism growth in 2026, and by the Council Conclusions

Building a sustainable and competitive tourism for the future. Together with earlier

contributions from the European Economic and Social Committee and the Committee of the

Regions, these institutional orientations, combined with extensive stakeholder input, provide

the mandate for this Strategy and its proposed actions. The present Strategy builds on a broad

institutional and stakeholder consensus and marks the next milestone in the evolution of EU

tourism policy. Further details are provided below.

While the policy context has evolved considerably over the past four decades, several themes

have remained remarkably consistent. These include cooperation between Member States,

respect for subsidiarity, support for local and regional destination development, better tourism

data and statistics, skills and employment, environmental sustainability, and integrated

governance.

107 European Commission, Stock-taking study of the co-implementation of Transition pathway for Tourism and

EU Agenda 2030: D7 Final Report (prepared by PwC), October 2025. 108 European Commission, EU Tourism Platform - Pledges, accessed November 2026.

31

Table 3. Key milestones in the development of EU tourism policy

Year Milestone

1984 Council Resolution on a Community policy on tourism

1986 Advisory Committee on Tourism established

1992 Maastricht Treaty recognises tourism among Community activities

2009 Treaty of Lisbon introduces Article 195 TFEU

2010 Commission Communication Europe, the world's No 1 tourist destination

2015 European Parliament Resolution on new challenges and concepts for the promotion

of tourism in Europe

2019 European Parliament Resolution on transport and tourism in 2020 and beyond

2020 Commission Communication Tourism and transport in 2020 and beyond

2021 European Parliament Resolution on establishing an EU strategy for sustainable

tourism

2021 Council invites the co-design of a European Agenda for Tourism 2030/ Council

conclusions of 27 May 2021 on Tourism in Europe for the next decade: sustainable,

resilient, digital, global and social

2021 European Court of Auditors Special Report: EU support to tourism: need for a fresh

strategic orientation and a better funding approach

2022 Transition Pathway for Tourism published

2022 Council Conclusions on a European Agenda for Tourism 2030

2024 Political Guidelines and Commission mandate strengthen the role of tourism

2025 EESC own initiative Opinion: Tourism in the EU: sustainability as a driver for long-

term competitiveness

2025 Committee of the Regions own initiative Opinion: Towards sustainable and resilient

tourism in the European Union: Strategy for balanced and adaptive management

2026 European Parliament Resolution on enhancing connectivity, preserving cultural

heritage, and driving local excellence in European tourism

2026 Council Conclusions Building a sustainable and competitive tourism for the future

2026 Commission Communication EU Strategy for Sustainable Tourism

2.2 Summary of consultations and other public collaborative input

The preparation of the Strategy sought to reflect the diversity of the European tourism

ecosystem and draw upon the expertise of its wide range of private and public stakeholders. To

this end, the Commission implemented a broad consultation and engagement process,

combining formal consultation instruments (open and targeted consultations and a call for

evidence), targeted dialogues (youth and stakeholder dialogues) and broader exchanges during

conferences and events, notably the European Tourism Day 2026. The following sections

provide an overview of the consultation process.

2.2.1 Open and targeted public consultations

In the run up to Strategy, the Commission designed an ambitious consultation strategy and

collected feedback from a diverse range of stakeholders involved or affected by the

implementation of the Strategy. It was designed in line with the Commission’s Better

32

Regulation Toolbox (Tool #54)109, following the principles of inclusiveness, transparency,

proportionality, and methodological rigour. The process combined three distinct consultation

activities, balancing broad public participation with targeted and more structured input from

experienced stakeholders. It included:

• A targeted consultation (TC), conducted over a twelve-week period ending on 15

August 2025, gathered structured feedback from experienced sectoral stakeholders and

received 603 responses.

• An open public consultation (OPC), running from 20 June to 12 September 2025,

allowed for participation from citizens and stakeholders via the Commission’s “Have

Your Say” platform110. It reached 397 respondents.

• A call for evidence (CfE), launched in parallel with the OPC, provided an additional

channel for stakeholders to submit position papers and technical contributions, leading

to 76 submissions.

Table 4: Overview respondents for the three consultation channels:

Stakeholder

category

Targeted

consultation

Open public

consultation

Call for

evidence

Association 110 42 28

Company/business 103 56 12

Destination management organisation 84 - 3

Local administration 82 23 4

Civil society 72 28 9

Academia and research 47 10 2

Other 38 13 2

National administration 36 8 3

Citizen 21 217 11

International organisation 7 - 2

EU entity 1 - -

Total 603 397 76

The following summary presents the main findings of the online targeted consultation (TC)

and open public consultation (OPC), organised by the Strategy’s main policy areas.

Competitiveness:

• There was strong alignment on skills as a priority, including skills academies and

apprenticeships/work-based learning as primary means to address workforce shortages

and close skills gaps. While upskilling and reskilling emerged as a top priority for all

stakeholder groups, followed by fair and attractive working conditions, citizens

responding to the OPC prioritised fair and attractive working conditions over upskilling

and reskilling.

• Facilitating access to affordable and user-friendly digital solutions emerged as the

main priority for accelerating the digital transformation of tourism businesses,

109 European Commission, Better Regulation Toolbox, Tool #54: Analysing Data and Informing Policymaking.

Accessed November 2026. 110 European Commission, EU Tourism Strategy ‘Call for Evidence’ (20 June - 12 September 2025), accessed

November 2026.

33

particularly SMEs. Digital skills development ranked second overall, while Member

States placed greater emphasis on collaboration with technology providers. The TC also

showed strong support for data access and sharing, followed by digital upskilling and

collaboration. The OPC highlighted collaboration as a top priority, including for rural

areas, followed by the European Digital Identity.

• Reducing administrative burden and simplifying access to funding emerged as the

main priorities for boosting competitiveness. The OPC also highlighted the need for

better policy coordination at EU level, while stakeholders consistently identified the

complexity of application procedures as the main obstacle to accessing EU funding.

Sustainability:

• A cross-cutting theme across the TC, OPC and CfE was the role of smart tourism in

helping destinations address unbalanced tourism. The OPC also highlighted the

importance of developing common EU standards and definitions for smart destinations.

• The three highest-ranking (and equally scoring) environmental priorities across both

the TC and OPC were mitigating environmental impacts, promoting sustainable travel

and climate adaptation.

• The main social sustainability priorities identified across the TC, OPC and CfE were

addressing unbalanced tourism development and ensuring the inclusion of host

communities.

• Accessibility priorities identified in the TC included improving accessibility for

diverse traveller groups and across income levels, financial support for destinations to

invest in accessible infrastructure and services, training for tourism professionals, and

cooperation with disability stakeholders. The OPC produced similar findings, although

citizens also placed particular emphasis on the safety of vulnerable groups.

Connectivity:

• Improving rail connectivity and usability emerged as by far the highest priority, with

cross-border high-speed rail and digitally accessible rail ticketing clearly ranking first.

• Improving (sustainable) connectivity overall was a recurrent concern, and in particular

for remote, rural and mountainous areas, and for islands and outermost regions.

• Respondents stressed the importance of sustainable travel, and of a low carbon mobility

offer, including multi-modal solutions, as part of a wider (transport) decarbonisation

agenda.

Outreach and branding:

• Stakeholders broadly agreed that Europe should build its international attractiveness on

its cultural heritage, sustainability and diversity. The TC identified positioning Europe

as a sustainable tourism leader as the highest priority, followed by showcasing its

rich culture and history, while the OPC ranked these two priorities in the opposite

order. Rural areas and outermost regions placed greater emphasis on promoting tourism

beyond major cities and increasing the visibility of lesser-known destinations. Member

States also highlighted safety and security as an important element of Europe's

attractiveness.

• Stakeholders supported stronger coordination of Europe's international promotion

while recognising the importance of preserving regional and local identities. The

preferred promotion channels were social media and tourism websites and apps, while

34

Member States placed greater emphasis on influencer partnerships. Views were more

mixed on the need for a single European tourism brand, with stronger support among

Member States than among islands and outermost regions, which expressed greater

preference for differentiated approaches reflecting their specific identities.

2.2.2 Targeted stakeholder dialogues

To complement the public consultation process and allow for direct interaction with sector

representatives, the Commission organised three dedicated stakeholder dialogues in Brussels.

Meeting minutes are available on the Commission’s transparency webpage111.

Stakeholder dialogue with hospitality and technology focused industry representatives (26 January

2026)

Stakeholders broadly agreed that tourism policy must be co-designed with those responsible

for implementation, with stronger and more structured public-private cooperation at EU,

national and destination level. There was consensus that policy coherence across EU initiatives

affecting tourism remains insufficient, and that fragmentation increases administrative

burden and reduces effectiveness. Participants stressed the importance of regulatory

simplicity, proportionality and practical feasibility, particularly for SMEs and micro-

enterprises. There was broad support for better coordination between digital, consumer,

sustainability and labour policies, and for fair competition across different business models

operating in tourism.

Skills shortages and labour constraints were identified as a structural challenge across all

subsectors. Stakeholders converged on the need for joint EU-level action on upskilling and

reskilling, including a Tourism Academy, for stronger links between education systems and

tourism careers (including early exposure), and for improved working conditions and career

prospects to attract and retain talent, with agreement that the perception of tourism employment

needs to change, recognising its contribution to social cohesion and regional development.

Better integration of migrant workers through skills-based approaches and social safeguards

was also highlighted.

Broad agreement emerged that addressing unbalanced tourism requires active destination

management. Solutions should combine demand management, dispersion, capacity planning

and infrastructure investment, aligned with destination strategies. Community trust and

resident acceptance were considered central to long-term sustainability. Stakeholders shared a

multidimensional understanding of sustainability, including decarbonisation, energy transition

and climate resilience, working conditions, housing affordability and community well-being,

and business viability and long-term competitiveness. There was broad support for clear,

harmonised sustainability frameworks, proportional requirements, and incentives—especially

for SMEs—to invest in greener practices. Data, common standards and access to finance were

seen as critical enablers.

Participants also converged on the importance of digital tools and data. Broad agreement

emerged on the value of data sharing and partnerships to better understand and manage tourism

flows, on the role of platforms and technology in smoothing demand peaks and supporting

111 European Commission, Meetings of Commissioner Apostolos Tzitzikostas with Interest Representatives,

accessed November 2026.

35

dispersion, on the need for clarity and consistency in digital and platform-related regulations,

and on ensuring visibility and market access for smaller tourism businesses online.

Finally, there was convergence on the need for a strong, long-term EU approach to branding

and promotion, for better alignment between sustainability objectives and market-facing

communication, for stable and predictable EU funding for international tourism promotion, and

for positioning tourism as a strategic asset and ambassador for Europe globally.

Stakeholder Dialogue with mobility and sectoral tourism representatives and related industries (25

February 2026) 112

Airlines and airports highlighted the importance of air connectivity for international tourism,

particularly for long-haul visitors. They warned about rising regulatory and sustainability costs.

Regional connectivity and airport capacity were highlighted as strategic assets. Calls were

made for visa facilitation, efficient border management (Entry/Exit System implementation),

slot reform, more open-skies agreements and a balanced regulatory approach to ensure

decarbonization without harming viability.

Rail and multimodality stakeholders argued for a stronger shift toward sustainable mobility,

particularly high-speed rail and cross-border ticketing. They stressed the need for seamless

digital ticketing, fair competition with aviation (polluter pays principle), and incentives to

redirect flows to lesser-known destinations. Coaches, buses and ferries were positioned as ways

to reduce overtourism and improve territorial cohesion, with investment in terminals and better

integration into Trans-European Transport Network (TEN-T)113 and Sustainable Urban

Mobility Plan (SUMP)114 frameworks needed.

Regarding sustainability, stakeholders emphasised adaptation to climate change,

decarbonisation of transport and accommodation, investment frameworks to make

sustainability “investable,” and infrastructure readiness (e.g. marinas, EV charging). Several

called for a shift from volume to value tourism, improved visitor flow management, and better

use of data to tackle overtourism.

Digitalisation and data were repeatedly identified as enabling factors. Seamless multimodal

ticketing, data-sharing frameworks, interoperable systems, and EU-wide standards are seen as

crucial. Industry cautioned against overregulation in areas where digital solutions are already

emerging, while SMEs called for support to manage digital transition and platform dependence.

SMEs, skills and social sustainability were also emphasised. Stakeholders requested

simplified access to EU funding, targeted financial tools, better visa regimes (especially for

business travel and cultural production), and protection of local authenticity. Skills shortages

affect all transport modes and tourism services, requiring improved working conditions,

training and stronger links between transport and tourism workforce policies. Accessibility and

inclusion (EU Accessibility Act implementation) were also highlighted.

Cultural and business tourism actors stressed Europe’s soft power — films, heritage,

conferences, and events drive demand and promote lesser-known destinations. They called for

112 European Commission, Meetings of Commissioner Apostolos Tzitzikostas with Interest Representatives,

accessed November 2026. 113 European Commission, Trans-European Transport Network (TEN-T), accessed November 2026. 114 European Commission, Sustainable Urban Mobility Planning and Monitoring, accessed November 2026.

36

faster visa procedures, better statistics (including business travel data), and recognition of

tourism’s role in Europe’s global positioning.

Stakeholder Dialogue with Mayors and representatives of regional and local organisations on

empowering sustainable European cities for balanced tourism (24 March 2026)

Participants noted a series of major challenges cities are facing in developing tourism that is

better balanced with the needs of local communities. This includes short-term rentals and

housing and more generally questions of platform regulation and legal empowerment. Spatial

and seasonal concentration was a core operational challenge, given at times extreme visitor

flow concentration in small historic city centres. This contrasts with underused capacities and

seasonal advantages in other cities and regions. Cities referred to a loss of neighbourhood

identity with traditional local shops, crafts, and meeting places being replaced by tourist-

oriented monoculture.

Governance fragmentation was a recurring point, withtourism impacted by mobility,

accommodation, climate, and urban planning. Participants called for maintaining a regular

dialogue with relevant policy areas, for instance digital, economic development, climate, and

housing. This approach should extend to integrated investment plans instead of single-issue

funding. Structured permanent dialogue and stronger cross-municipal and regional cooperation

help manage tourism pressures and distribute benefits more fairly, participants stressed, putting

local actors at the heart of the strategy.

Data sharing and common standards was considered a core area for attention, to makedata

available in real time at city level, not just in aggregate. Standardising data collection and

indicators helps destinations work with comparable metrics. This could include a common EU

methodology for measuring carrying capacity.

Mobility and integrated ticketing are core issues for cities and regions, includingmultimodal

booking covering rail, coach, and aviation; booking a train should be as easy as is currently

booking a flight. Ideas mentioned included joint public transport ticketing so that tourists need

no separate app per city and funding to close cycling network gaps and support cycling tourism.

Cities called for dedicated anddirect access to EU funding for tourism infrastructure. Building

for peak visitor volumes and everyday community needs simultaneously can bring enormous

local advantages. Aspects of Member State internal taxation and distribution were mentioned.

Cities offered a multitude of local success stories and good examples for re-use by others and

as inspiration for EU policy support. This included certification and upskilling, localshort-term

rental and retail approaches; data-driven visitor management adjusting mobility and

communications in real time; consistent resident surveying to feed local concerns into policy;

seasonal spread of events; combining urban trekking, biking, and walking trails that serve both

tourists and residents, including development of bike lanes and electric urban mobility.

Integrating smart tourism approaches with smart city development facilitates planning and

management and benefits residents and visitors equally.

2.2.3 Youth Dialogues

Policy debates with young people are important opportunities for the Commission to identify

policy ideas and to “pre-test” them for validity and implementability, and for expected impacts

37

on future generations115. Two dedicated youth dialogues were held to feed into the drafting of

the present Strategy.

Youth Policy Dialogue with Commissioner Apostolos Tzitzikostas 6 March 2025, Brussels, Belgium

Participants called for improving rail infrastructure in underdeveloped areas, reducing train

travel costs, and for easier ticket reservation processes along with access to travel information

when involving trains from different companies. They recommended a combined effort

between European and local institutions to improve infrastructure and travel experience. Safety

is seen as a top priority in rail travel including for women or non-binary travellers, and

accident rates, theft, and gender-based abuse directly affect perceptions about rail travel. They

linked safety to environmental concerns, calling for measures to cut CO2 emissions and air

pollution. Proposed solutions included creating city parking areas with public transport links,

introducing hydrogen buses, and promoting cycling. Participants also pushed for better urban

mobility accessibility, including more elevators, wheelchair passages, and sensor-based

assistive devices.

Improving working conditions, training and workers’ rights in transport and tourism

was considered crucial for attracting a younger and more diverse workforce. Participants

mentioned that many transport jobs are located in remote areas and difficult to access without

a car. The seasonality and informality of some jobs in transport and tourism represent barriers

to work in the sector.

Comfort and safety, closely linked to gender and ethnic origin, were mentioned as important

to young people, also when choosing a travel destination. Other criteria are affordability and

sustainability. Participants noted the influence of locations trending on social media when

choosing a destination but also expressed concerns about contributing to tourism-driven

housing pressures in urban areas and about unregulated tourism affecting cities’ authenticity

and neighbourhood dynamics.

Youth Policy Dialogue with Commissioner Apostolos Tzitzikostas 15 May 2026, Athens, Greece

Sustainable and balanced tourism was a central theme of the dialogue, reflecting concerns

about overtourism, environmental pressures, and protecting local communities while

maintaining Europe’s competitiveness. Particular attention was given to destination

management, dispersing tourism flows to lesser-known and rural areas, sustainable mobility,

and promoting authentic tourism experiences over mass tourism.

Participants emphasised that tourism should be accessible, inclusive, and beneficial for

residents as well as for visitors. Accessibility for persons with disabilities received

particularly strong attention, with discussions focusing on inadequate assistance systems, lack

of transparent information, affordability barriers, and difficulties faced by disabled travellers.

Broader concerns also included affordability of travel for young people and ensuring tourism

improves local quality of life.

A third major takeaway was the need to ensure tourism creates sustainable economic

opportunities for workers, local businesses, and young entrepreneurs. Discussions focused on

115 European Commission, Youth Policy Dialogues, accessed November 2026.

38

seasonal employment, working conditions, digitalisation challenges for small businesses, and

the importance of training and upskilling.

2.2.4 Public debates and other targeted expert input into the Strategy

In addition to the public consultation and targeted stakeholder consultation, the Commission

organised a series of thematic technical dialogues, workshops and expert meetings to gather

specialised input on key policy areas of the Strategy. In particular, the Together for EU Tourism

(T4T) expert group provided a structured forum for stakeholder input and in-depth discussions

on key themes under the Transition Pathway for Tourism, contributing to the preparation of

the Strategy. All these events brought together public authorities, international organisations,

industry representatives, destination management organisations, academia and other experts to

test policy ideas, exchange good practices and identify implementation needs. Their findings

informed the preparation of several actions under the Strategy, including Destination Europe,

balanced tourism management, skills development and stakeholder cooperation.

Together for EU Tourism (T4T) sub-groups (2023-2026)

The T4T initiative continued to support the implementation of the Transition Pathway for

Tourism by bringing together stakeholders from across the tourism ecosystem to exchange

good practices and develop recommendations on key transition challenges. Through its

thematic sub-groups on green, digital, and resilience and skills, T4T provided a structured

forum for cooperation between public authorities, destinations, businesses, academia and civil

society.

The work of the sub-groups informed several areas addressed by this Strategy, including

sustainable destination management, digitalisation, skills, balanced tourism, climate resilience

and competitiveness. Activities included expert meetings, webinars, policy papers, practical

guidance and contributions to the implementation of the Transition Pathway for Tourism and

the preparation of Strategy. The T4T sub-groups have not only contributed recommendations

to the preparation and implementation of EU tourism policy but also helped create a growing

repository of practical knowledge and good practices through the EU Tourism Platform,

ensuring that stakeholder expertise remains accessible beyond individual projects and events.

The T4T Green transition subgroup brought together more than 35 organisations from over

15 Member States and organised over 25 coordination meetings between 2023 and 2026. Its

outreach activities included 8 public webinars, several of which attracted more than 200 to 300

participants, covering topics such as environmental impact measurement, food waste reduction,

climate adaptation, low-carbon mobility, regenerative tourism and environmental sustainability

as a driver of competitiveness. The subgroup also produced a policy white paper on sustainable

destination management and regenerative tourism, supported by a practical implementation

framework. In addition, it submitted individual and collective contributions to the Strategy’s

Open Public Consultation and the Transition Pathway stock-taking exercise, focusing on

themes such as decarbonisation, competitiveness, and sustainable destination management.

The subgroup further contributed to the joint final report of the three T4T subgroups on

unbalanced tourism, which was presented following a dedicated hybrid event on 27 May 2025.

The subgroup also produced and curated content to help populate the EU Tourism Platform on

topics including regenerative tourism, sustainable destination management and related green

transition priorities.

39

The T4T Digital transition subgroup brought together representatives from across the

European tourism ecosystem to address key priorities related to digitalisation, data sharing and

data-driven tourism. Its work has contributed to advancing the discussion around the European

Tourism Data Space, improving the use and interoperability of tourism data, and demonstrating

how digital technologies can strengthen destination management, sustainability and

competitiveness. Among its concrete outputs, the subgroup and its dedicated task forces

mapped existing approaches to tourism indicators and sustainability measurement, resulting in

the report Harmonising Tourism Statistics for Sustainability116, and facilitated exchanges

between public authorities, destinations, technology providers, tourism businesses and

European institutions on the practical implementation of data sharing. Through a series of

thematic workshops and webinars between 2024 and 2026, the subgroup translated these

priorities into practical examples and policy-relevant discussions. Topics included tourism

indicators for sustainable development, effective use of digital tools for smart tourism

management, the European Tourism Data Space and data-sharing models, the use of short-term

rental data, multimodal travel and ticketing, Artificial Intelligence in destination management

and tourism businesses, and the competitiveness of Europe's travel-tech ecosystem. These

activities showcased concrete use cases and emerging technologies while addressing

governance, skills, regulatory and business-model challenges. Overall, the subgroup has helped

connect EU digital policy objectives with practical implementation across the tourism

ecosystem, supporting destinations and businesses – including SMEs – in making better use of

data and digital technologies and contributing to a more innovative, sustainable, resilient and

competitive European tourism sector.

The T4T Resilience, Skills and Inclusion subgroup brought together representatives from

public authorities, tourism businesses, destinations, academia, social partners and international

organisations to support the implementation of the Transition Pathway in the areas of

resilience, governance, skills development and inclusive tourism. Its work contributed to

advancing policy discussions on destination governance, tourism resilience, labour market

challenges, skills development, cross-border mobility and the long-term competitiveness of

European tourism. A central pillar of the subgroup’s work was the organisation of thematic

webinars and expert exchanges that generated policy-relevant insights and practical

recommendations. The webinar Tourism Strategies Towards Resilience (2024)117 highlighted

the importance of destination stewardship, resident engagement, evidence-based policymaking

and multi-stakeholder governance in building resilient tourism ecosystems. The webinar

Renewing Tourism Education118 contributed to discussions on adapting tourism education and

training systems to the green and digital transitions and addressing future workforce needs. In

2025, the webinar Better Together: Improving Tourism Through a Collaborative Approach to

Effective Governance119 showcased governance models and case studies from Vienna, Dublin,

Gdansk, Flanders and Attica, demonstrating how stakeholder participation, destination data

and long-term planning can strengthen resilience and improve public acceptance of tourism.

The webinar Better Cross-Border Travel: Europe’s External Borders and Freedom of

Movement provided a forum for discussion on the implementation of EES and ETIAS, digital

116 European Commission, Harmonising Tourism Statistics for Sustainability: A Report by the T4T Expert

Group, November 2024. 117 European Commission, Tourism Strategies towards Resilience, Webinar organised by the Skills & Resilience

subgroup of the Together for EU Tourism (T4T) expert group, June 2024. 118 European Commission, Tourism Education and Training, Webinar organised by the Skills & Resilience

subgroup of the Together for EU Tourism (T4T) expert group, December 2024. 119 European Commission, Better Together: Improving Tourism through a Collaborative Approach to Effective

Governance, Webinar organised by the Skills, Resilience and Inclusion subgroup of the Together for EU

Tourism (T4T) expert group, April 2025.

40

border management and transport connectivity, contributing to reflections on how mobility

policies can support both competitiveness and traveller experience. Finally, the subgroup’s

work on Awareness Raising on Education and Training Opportunities Needed for the Twin

Transition120 helped raise awareness of future skills requirements, reskilling needs and

workforce development challenges, supporting the objective of ensuring that the tourism

workforce is equipped to accompany the sector’s green and digital transformation.

Collectively, these activities contributed to the dissemination of good practices, strengthened

cooperation between tourism stakeholders and provided practical input to policy discussions.

The T4T Horizontal Task Force on Unbalanced Tourism was established to examine the

growing challenge of the uneven distribution of tourism flows across destinations and seasons

in Europe. With more than 40 T4T experts participating, the final report121 highlights that

unbalanced tourism is not limited to overtourism in a few iconic destinations, but also includes

undertourism in less visited regions, creating economic, social and territorial disparities. The

report stresses that the concentration of tourism demand is driven by factors such as seasonality,

transport connectivity, digital platforms, destination visibility and changing travel patterns,

while climate change is increasingly influencing tourism flows. It argues that a more balanced

tourism model is essential to preserve residents’ quality of life, protect natural and cultural

resources, strengthen destination resilience and ensure that tourism benefits are more evenly

distributed across the regions within EU. The report’s main recommendations focus on a

transition from growth based primarily on visitor volumes to a model centred on sustainability,

resilience and value creation. It calls for stronger destination management, better use of tourism

data and monitoring systems, community involvement in decision-making, spatial and seasonal

redistribution of visitors, investment in sustainable mobility and public transport, and the

promotion of alternative destinations and tourism products. The report also encourages the

deployment of digital tools to manage visitor flows, stronger cooperation between public

authorities and tourism stakeholders, and greater use of EU funding instruments to support

innovative solutions. A key message of the report is that addressing unbalanced tourism

requires coordinated action at local, regional, national and EU levels, ensuring that tourism

growth remains compatible with environmental protection, social cohesion and long-term

competitiveness.

Technical workshop on Destination Europe branding, 27 January 2026, Brussels

On 27 January 2026, the Commission organised a technical workshop on Destination Europe

branding in cooperation with the European Travel Commission (ETC) and supported by

external place-branding experts. The workshop brought together around 125 participants from

across Europe, including representatives of Member States and enlargement countries, national

and regional tourism organisations, international organisations, destinations, digital platforms,

academia, private-sector stakeholders and trade associations.

The objective was to explore how a common Destination Europe branding framework could

strengthen Europe's global competitiveness while complementing, rather than replacing,

national and regional tourism brands. Discussions focused on the strategic purpose of a

European tourism brand, its governance, core values, implementation mechanisms and

relationship with existing branding initiatives. Participants broadly agreed that the initiative

120 European Commission, Awareness Raising on Education and Training Opportunities Needed for the Twin

Transition, Webinar organised by the Skills, Resilience and Inclusion subgroup of the Together for EU Tourism

(T4T) expert group, December 2025. 121 European Commission, Unbalanced Tourism: Final Report of the T4T Horizontal Task-Force, October 2025.

41

should be conceived as a long-term strategic framework rather than a marketing campaign or

logo, helping to articulate a shared European narrative and strengthen policy coherence across

tourism, transport, culture, sustainability and external relations.

The workshop confirmed broad support for developing the Destination Europe framework

around shared European values and identified several priorities for future work. The workshop

concluded with a series of strategic orientations:

• A Destination Europe brand should provide a common strategic narrative while

complementing national and regional brands.

• The brand should be built around shared European values, sustainability, quality,

cultural heritage and authentic visitor experiences, rather than a visual identity alone.

• It should support Europe's international competitiveness, promote lesser-known

destinations and encourage year-round tourism.

• Governance should be collaborative, involving the European Commission, the

European Travel Commission, Member States and other stakeholders.

• Practical implementation should be supported through branding guidelines, toolkits,

pilot projects and continued stakeholder engagement.

Urban Agenda for EU Sustainable tourism partnership actions contributing to the strategy priorities

The Sustainable Tourism Partnership was established in December 2022 under the Urban

Agenda for the EU122. It brings together cities, regions, a national authority, Commission

services and other stakeholders to work across governance levels on the sustainable

development of urban tourism. The partnership follows the co-creation and co-implementation

method of the Urban Agenda, and it contributes to the implementation of the Transition

Pathway for Tourism and the European Agenda for Tourism 2030. Members of the Partnership

are urban and regional authorities, one national authority, European urban umbrella

associations, as well as Commission services, including the Directorate-General for Regional

and Urban Policy (DG REGIO), the Directorate-General for Mobility and Transport (DG

MOVE) and Joint Research Canter (JRC).

The partnership adopted its Action Plan in November 2024, following an ex-ante assessment,

an orientation paper and a public consultation held in mid-2024. Actions are voluntary and

create no obligations for member states or cities, in keeping with the supporting nature of the

Union's competence for tourism under Article 195 TFEU. Structured around the three

objectives of the Urban Agenda, better knowledge, better funding and better regulation, it sets

out six actions addressed to local and regional authorities, destination management

organisations and tourism businesses, with the aim of helping urban destinations apply existing

EU initiatives and exchange good practice.

Three actions address the environmental and climate dimension of urban tourism. The first

developed guidelines to help destinations prepare and communicate climate action plans,

promote a climate-friendly offer and encourage more sustainable visitor behaviour. It draws on

the Glasgow Declaration on Climate Action in Tourism and coordinates with the Horizon

Europe Mission on climate-neutral and smart cities. A second action supports the use of

sustainability certifications by tourism SMEs, in support of reliable and verifiable

122 European Commission, Urban Agenda for the EU, Sustainable Tourism Partnership: Action Plan, November

2024.

42

environmental claims, consistent with the Directive on empowering consumers for the green

transition (Directive (EU) 2024/825), which applies from 27 September 2026. A third promotes

diversification of the tourism offer as a way to build more resilient destinations and ease

pressure on the most heavily visited sites.

The remaining actions address the digital, social and economic dimensions. One develops the

digital competences of tourism professionals and of local and regional authorities. Two actions

have adopted dedicated handbooks for urban destinations to better foster the diversification of

the tourism offer across time, space and activities and improve the accessibility of the

destination and tourism services, which include targeted recommendations and good practices.

The last sets out approaches to protect local retail as an asset for tourism and to counter the loss

of diversity in historic city centres under visitor pressure.

The partnership is finalising the implementation of the actions throughout 2026 and submitted

a request to the Commission to continue its work until 30 June 2027, with a focus on

capitalisation, dissemination, policy alignment and stronger links with the upcoming EU

Strategy for sustainable tourism. The partners published guidelines for climate-friendly and

resilient urban destinations in November 2025, and in January 2026 issued a practical

handbook on greening tourism SMEs together with a note on financial tools for sustainable

tourism SMEs. Through the partnership, cities and regions contribute to the objectives of EU

sustainable tourism policy, and the outputs of its Action Plan are available to destinations

across the Union.

Technical dialogue with urban destinations under the EU Agenda for Cities on Balanced Tourism

Management in EU Destinations and Tourism Policy Lab, 22-23 April 2026, Copenhagen

In preparing the Strategy, the Commission held a first technical dialogue on balanced tourism

management and a policy lab with urban destinations in Copenhagen on 22 and 23 April 2026.

This was the first pilot of the technical dialogues the Commission is developing with cities

under the EU Agenda for Cities, jointly organised with the European Urban Initiative. It feeds

the preparation of the Toolbox on balanced tourism management and complements the work

of the Urban Agenda for the EU Thematic Partnership on Sustainable Tourism.

The dialogue examined how urban destinations manage visitor pressure while keeping the city

liveable for residents. Nine cities set out their experience across three workshops, on managing

pressure, sustainable growth, and preserving local identity, followed by an open exchange with

peer cities. The policy lab drew on cities experience recognised for their tourism management,

among them Tampere, the 2026 European Capital of Smart Tourism, and Dubrovnik, the 2026

European Green Pioneer of Smart Tourism, together with partner cities of the Urban Agenda

for the EU Partnership on Sustainable Tourism, destinations from the Commission's

"Sustainable EU Tourism, Shaping the Tourism of Tomorrow" project, and cities running

tourism-related projects under the European Urban Initiative second call for Innovative

Actions. Study visits showed practical measures the host city is using to spread the benefits of

tourism to residents and local business.

43

Example: CopenPay123

Copenhagen implements a reward system that has inspired many destinations globally and is being

scaled up into DestinationPay124. CopenPay is a behavioural “nudging” scheme that encourages tourists

to make more responsible choices by rewarding them for positive actions. First launched as a pilot in

summer 2024 and expanded in 2025, it has attracted more than 30,000 participants and over 100 local

partners, while destinations worldwide have expressed interest in adopting the model. The initiative has

contributed to a 59% increase in bike rentals, with 7 in 10 participants reporting that it changed their

habits even after returning home, and 98% saying they would recommend CopenPay. It also reflects a

wider desire among travellers to leave destinations better than they found them.

As outlined in the report on the dialogue125, cities converged on expectations to the EU: The

first was greater legal certainty at EU level for bold local measures, in particular on short-term

rentals and housing, so that cities can act without repeated legal challenge. A resident-first

orientation should sit at the core of EU tourism policy, with liveability and wellbeing weighed

alongside economic goals, and behavioural change through nudging and communication

should count as a complement to regulation and infrastructure. On funding, cities of every size

wanted support and capacity-building matched to their circumstances, and several smaller

destinations said they feel less well served by current programmes. There was a clear demand

for practical tools, both for collecting and using data and for multilevel governance, including

guidance on carrying capacity and thresholds for balanced tourism. Cities also pressed for

stronger support for sustainable transport and for better connectivity to peripheral and rural

areas, arguing that efforts to redistribute visitors have limited effect without it. Tourism, in

their view, should be handled as a cross-cutting urban issue, integrated with housing, mobility

and urban planning. A few made more specific requests for interoperable EU systems to

support cross-border enforcement, for example access to vehicle registration data to help them

manage low-emission zones and access restrictions for non-resident European drivers.

These messages inform work under the Strategy and confirm the consistent resident-first and

liveability focus. Some concerns reach beyond tourism policy, for instance legal certainty for

local measures on short-term rentals. Addressing these challenges requires cooperation across

policy areas. In this context, the Commission supports cities through a pool of knowledge and

good practices across multiple policy areas and topics, including on environmental protection,

resource efficiency, climate change, risk prevention and the low-carbon economy126.

European Tourism Day, 26 January 2026.

The European Tourism Day is a recurring conference for the wider stakeholder community to

trace and debate trends, challenges and common approaches. The latest ETD took place in

Brussels on 26 January 2026127. The event gathered a wide range of stakeholders, including

CEOs, policymakers, city representatives, investors, and innovators - illustrating the breadth

and complexity of the tourism ecosystem. Their presence underscored tourism’s importance

not only as a source of economic activity but also as a strategic sector supporting regional

development, cultural exchange, and Europe’s global competitiveness. Discussions throughout

123 Wonderful Copenhagen, CopenPay: About CopenPay, Accessed November 2026. 124 Wonderful Copenhagen, DestinationPay, accessed November 2026. 125 European Urban Initiative, Report of the Technical Dialogue on Balanced Tourism Management, September

2026. 126 European Commission, Cities Portal, Directorate-General for Regional and Urban Policy, accessed

November 2026. 127 European Commission, European Tourism Day 2026: Recording Available, January 2026.

44

the day reflected both the sector’s current dynamism and the shared commitment to ensuring

that its growth remains sustainable and resilient.

The opening session stressed European tourism’s renewed strength. A central theme of the

event was the rapid digital transformation of tourism. AI is increasingly influencing how

travellers search for inspiration, plan their journeys, and interact with services, and industry

leaders highlighted its capacity to support more personalised and efficient customer

experiences. At the same time, participants stressed that AI is only as effective as the data

behind it - making investment in digitalisation and high-quality, interoperable data essential if

Europe is to harness the full potential of these technologies. Mobility and accessibility were

also prominent topics, reflecting the need for a more seamless and sustainable transport system

across the continent. Speakers noted the importance of multimodal travel options, integrated

booking systems, and modern transport infrastructure, all of which will play a crucial role in

reducing environmental impact and improving the overall visitor experience. These priorities

align with upcoming EU initiatives on passenger rights and multimodal ticketing.

Beyond digital and mobility considerations, the event also explored deeper questions regarding

tourism’s identity and its role within European societies. More destinations are adopting

long-term, mission-driven approaches, including regenerative tourism models that focus not

only on minimising negative impact but also on creating positive outcomes for communities,

heritage, and the environment. This approach invites both policymakers and industry actors to

rethink traditional growth measures and put greater emphasis on cultural resilience, regional

balance, and meaningful engagement with local communities.

The discussions at the European Tourism Day 2026 showed the sector at an important turning

point. Its strong performance provides a solid foundation, but its future success depends on

coordinated action, continued innovation, and responsible governance. The future of tourism

in Europe is not simply about recovery or growth - it is about redefining what it means to travel,

to welcome, and to belong. Over the course of the event, speakers, city leaders, creators, and

policymakers collectively painted a picture of a tourism landscape in transformation,

underscored the shared responsibility of destinations, institutions, and travellers in shaping a

future where tourism supports both people and place and where storytelling, identity, resilience,

and responsibility form the new foundations of Europe’s appeal.

Central to this reframing is the idea of rebalancing demand. Europe must guide interest across

seasons, regions, and types of experiences, not by discouraging travel but through intelligent

redirection - sharing alternatives, adjusting timing, and using technology to help visitors find

places that match their interests without overwhelming local communities. The goal is not to

attract more visitors at any cost, but to attract the right visitors: those who value the cultural

richness, environmental sensitivity, and social context of the places they explore. This

perspective calls for cooperation, innovation, and a renewed understanding of what tourism

represents in Europe and for it.

2.3 EU institutional policy positions and evidence

During the preparation of the Strategy, the European Parliament, the Council of the European

Union, the European Economic and Social Committee (EESC) and the European Committee

of the Regions (CoR) each adopted policy positions relating to the future of EU tourism policy.

These were complemented by evidence as presented in the Commission’s three-year report on

45

the Agenda for Tourism 2030.128 Although differing in legal nature and institutional role, these

policy positions demonstrate a broad convergence around the need for a more strategic,

coordinated and sustainable European approach to tourism. Taken together, they provide an

important political mandate for the Strategy and identify recurring priorities, including

sustainability, competitiveness, destination management, connectivity, skills, governance and

resilience.

Theme EP Council CoR EESC

Competitiveness ✓ ✓ ✓ ✓

Sustainability ✓ ✓ ✓ ✓

Destination management ✓ ✓ ✓ ✓

Skills ✓ ✓ ✓ ✓

Connectivity ✓ ✓ ✓

Data & AI ✓ ✓ ✓ ✓ Crisis preparedness ✓ ✓

Governance ✓ ✓ ✓ ✓

EU funding and

investment ✓

✓ ✓

2.3.1 EU institutional policy positions and recommendations

The following section presents policy statements in support of EU tourism policy as taken by

EU institutions and bodies since the publication of the Transition Pathway for Tourism in 2022.

European Parliament

The European Parliament adopted its Resolution Enhancing connectivity, preserving cultural

heritage, and driving local excellence in European tourism: destination management and

regional tourism growth on 28 April 2026, on the basis of an own-initiative report by its

Committee on Transport and Tourism.129 The European Parliament identifies connectivity as a

prerequisite for sustainable tourism and regional development, and it presses for accessible,

affordable and reliable transport and for complementarity between modes. It addresses

unbalanced tourism, noting the concentration of visitors in a small number of destinations, and

favours redirecting demand towards lesser-known, rural, mountain and remote areas and

developing forms of tourism, including cultural, gastronomic, cycling and regenerative

tourism, that extend the season. On short-term rentals, Parliament welcomes the Regulation on

data collection and sharing for short-term accommodation rental services (Regulation (EU)

2024/1028), applicable from 20 May 2026, while calling on the Commission to bring forward

a further framework that would set service standards and allow Member States to cap letting

nights or introduce authorisation and zoning schemes, and it calls for a dedicated budget line

for tourism in the 2028 to 2034 Multiannual Financial Framework (MFF).

128 European Commission, Report from the Commission to the Council on the implementation of the European

Tourism Agenda 2030, COM°(2025)°763 final. 129 European Parliament,Resolution of 28 April 2026 on enhancing connectivity, preserving cultural heritage, and

driving local excellence in European tourism: destination management and regional tourism growth

(2025/2120(INI)).

46

Council of the European Union

The Council of the European Union adopted the European Agenda for Tourism 2030 and its

multiannual work programme on 1 December 2022130. The Agenda established a common

framework for cooperation between the Commission and Member States around five priority

areas: governance, the green transition, the digital transition, resilience and inclusion, and

skills. The Council invited the Commission to follow up on the implementation of priorities

and to report back at least every three years. The Commission's first such report was adopted

in December 2025 and forms part of the evidence base for this Strategy. The report draws on

an independent stock-taking study of the co-implementation of the Transition Pathway for

Tourism and the Agenda, carried out between January and October 2025131. It assessed the

measures that Member States have taken or plan to take by 2030 across the five priority areas

of the Agenda: the enabling policy framework and governance, the green transition, the digital

transition, resilience and inclusion, and skills and support for the transition. Progress within

each area was assessed as significant, moderate or limited, and Member States were grouped

as leading, progressing or emerging based on their cumulative performance.

Nearly all Member States have advanced in every priority area, though progress is uneven

across states and across priority areas. Research and innovation is one field where activity is

well documented, with more than 300 tourism-related projects on sustainability, climate and

circularity funded under Horizon 2020 and Horizon Europe by September 2025132. The report

also sets out where implementation lags, in particular gaps in multi-level governance and

inconsistent application of sustainable tourism principles across the Union. The actions in the

Agenda are voluntary and apply in accordance with the principle of subsidiarity, consistent

with the supporting competence conferred on the Union in the field of tourism under Article

195 TFEU. Building on this first implementation report, the Strategy concentrates the Union's

coordinating, funding and data instruments on the areas where progress has been slowest, while

the design and delivery of tourism measures remain with Member States and their regional and

local authorities.

The Council of the European Union adopted its Conclusions Building a sustainable and

competitive tourism for the future on 28 May 2026, meeting in the Competitiveness Council

configuration under the Cyprus Presidency133. The Council calls for the economic, social and

environmental dimensions to be integrated across tourism policy, for the sector's environmental

footprint to be reduced through resource efficiency, circularity, decarbonisation and the

protection of nature and biodiversity, and for tourism to benefit local communities and respect

cultural heritage. It supports multi-level governance and cross-sectoral cooperation, together

with quality employment and skills development, including upskilling and reskilling. The

conclusions also address the pressure of overtourism alongside the under-use of lesser-known

destinations, sustainable and multimodal connectivity, a European framework for tourism data

with guidance on the use of artificial intelligence, and stronger crisis preparedness in the face

of geopolitical tension, climate change and labour shortages. The Council invites the

130 Council of the European Union, Council conclusions on ‘European Agenda for Tourism 2030’, document

15441/22, December 2022. 131 European Commission, Stock-taking study of the co-implementation of Transition pathway for Tourism and

EU Agenda 2030: D7 Final Report (prepared by PwC), October 2025. 132 European Commission, Report from the Commission to the Council on the Implementation of the European

Tourism Agenda 2030, document COM°(2025)°763 final, December 2025. 133 Council of the European Union, Council conclusions on ‘Building a Sustainable and Competitive Tourism

for the Future’, document 9075/26, May 2026.

47

Commission to report every three years on implementation and to take these priorities into

account in preparing the EU Strategy for Sustainable Tourism.

European Economic and Social Committee

The European Economic and Social Committee (EESC) adopted its own-initiative opinion

Tourism in the EU: sustainability as a driver for long-term competitiveness on 27 February

2025134. The Committee calls for the transition to sustainable tourism to be accelerated and for

regenerative approaches, which aim to restore and strengthen the natural, social and economic

capital of destinations, to be reflected in the Strategy. It recommends that the Strategy be

accompanied by dedicated funding and research programmes and by social and training

measures and gives particular attention to the upskilling and reskilling of the tourism workforce

in sustainability and the circular economy as a means of raising job quality and retaining talent.

The Committee also supports measures to promote year-round tourism and to engage

consumers through accessible models and economic incentives.

European Committee of the Regions

The European Committee of the Regions (CoR) adopted its opinion Towards sustainable and

resilient tourism in the European Union: Strategy for balanced and adaptive management on

10 December 2025135. The Committee calls for a stronger role for local and regional authorities

in shaping, managing and regulating their destinations, and for their institutional, financial and

technical capacities to be reinforced, with training for tourism managers. It also calls for

tailored approaches and targeted funding for territories with particular geographical

characteristics, including islands, mountain areas, rural areas and the outermost regions, and

invites the Commission and the Council to translate the Strategy into an action plan with clear

resources, timelines and evaluation mechanisms. The Committee also points to the effects of

short-term rentals on housing, social cohesion and public services and calls for regulation,

monitoring, enforcement of the Union's data-sharing rules and limits on new permits.

134 European Economic and Social Committee, Opinion on ‘Tourism in the EU: Sustainability as a Driver for

Long-term Competitiveness’, document INT/1059, OJ C/2025/2014, April 2025. 135 European Committee of the Regions, Opinion on ‘Towards Sustainable and Resilient Tourism in the European

Union: Strategy for Balanced and Adaptive Management’, document CDR-1378-2025, OJ C/2026/761, February

2026.

48

Chapter 3. The pillars of the Strategy

The Strategy is structured around interconnected pillars, integrating key transport and mobility

actions within its competitiveness agenda. Across all of them, the proposed actions fully respect

the principles of subsidiarity and complementarity. They are designed to support and

complement action at local, regional and national level by both private and public stakeholders.

EU-level initiatives focus on areas where coordination, cooperation or common approaches

can provide clear added value and help address challenges that cannot be effectively tackled

alone.

3.1 A competitive tourism sector

This Staff Working Document complements the Strategy by analysing means to strengthen the

sustainable competitiveness of the European tourism ecosystem and its capacity to adapt to

structural and technological change. Tourism is a major contributor to the European economy

and employment, but its competitiveness is constrained by persistent labour and skills

shortages, the fragmented uptake of data and digital technologies, limited innovation capacity,

particularly among smaller businesses, and administrative and regulatory complexity.

At the same time, rapid technological change, including the growing use of artificial

intelligence, is transforming how tourism businesses operate, how destinations are managed

and how travellers search for, plan and experience tourism services. Ensuring that European

tourism can benefit from these developments requires stronger skills, better access to and use

of data, greater capacity to innovate and an operational environment that allows businesses to

invest and grow.

Addressing these challenges requires action across the tourism ecosystem, while building on

wider Single Market, skills, digital and simplification policies. Building on the consultation

process, this pillar therefore brings together mutually reinforcing actions to strengthen

productivity and innovation, support businesses and workers in adapting to change, and

improve the overall competitiveness of European tourism.

3.1.1 Skills and quality jobs in tourism

If attracting and retaining skilled talent is a challenge for any sector, it is essential for the

tourism ecosystem with its strong focus on labour-intensive services. The scale of the challenge

is also reflected in labour-market indicators. In the first quarter of 2026, accommodation and

food service activities recorded a job vacancy rate of 3.0% in the EU, compared with 2.1%

across the economy as a whole136. Labour shortages are compounded by the structure of

tourism employment, including comparatively high shares of temporary and part-time

employment, and by growing demand for digital, green and social skills. Labour shortages in

tourism sectors have different causes across EU Member States, but typically combine genuine

seasonal peaks and demographic labour scarcity with geographic mismatches (e.g. islands,

coastal and ski resorts), shortages of skilled staff such as cooks/chefs, unattractive working

conditions (relatively low pay137, difficult working hours, limited period of work, limited career

paths), high turnover and retention problems, housing constraints in tourist areas, and, in some

136 Eurostat, ‘Euro Area Job Vacancy Rate at 2.3% (EU Rate at 2.1%)’, June 2026. 137 Eurofound, ‘Low-paid Jobs: Employment Trends and Impact of Minimum Wage Policies’, September 2026.

49

countries, slow or restrictive migration procedures. There are also risks in the tourism sector,

including within Europe, relating to inadequate wages, unsafe working conditions,

exploitation, discrimination and harassment. In destinations with pronounced seasonal peaks,

employers may also rely on workers recruited from other EU Member States or third countries

to meet temporary labour needs.

The Seasonal Workers Directive138 provides for an EU framework for the swift and lawful

temporary admission and employment of third-country nationals in seasonal sectors for a

period of four to nine months (depending on the choice of each Member State) to meet seasonal

labour demand, while ensuring fair working and living conditions and protecting them against

exploitation. 21 out of 25 Member States applying the Directive have designated

accommodation, food services and/or tourism and related leisure services as seasonal sectors,

for which they allow admission of third-country seasonal workers under the Seasonal Workers

Directive. According to Eurostat data, in 2024, 47,203 authorisations for the purpose of

seasonal work, i.e. 17% of all issued authorisations, were issued for these sectors. Almost all

(98%) of these seasonal work authorisations for hospitality were issued by six Member States,

Croatia (15 185; 32%), Italy (12 631; 27%), Bulgaria (7 403; 16%), Greece (4 707; 10%),

Austria (3 293, 7%), and France (2 944, 6%) Although the number of third-country nationals

admitted under the Directive is increasing139, Member States are encouraged to use the

Directive more actively to address genuine seasonal and geographically concentrated labour

shortages, particularly in coastal, island, ski and summer-resort destinations, while simplifying

procedures.

Member States could also make better use of intra-EU mobile workers, and third country

nationals already legally resident, as well as under-employed workers, alongside third country

recruitment. Retention and recruitment could be improved by addressing relatively low pay,

irregular and weekend hours, career progression, contract stability, work-life balance and

accommodation constraints, which appear to be the causes of labour shortages in several

Member States. Among respondents to the consultation for this Strategy, upskilling and

reskilling was at the top of priorities for SMEs, Destination Management Organisations

(DMOs) and Member States, with citizens also considering it important along with fair and

attractive working conditions.

In terms of concrete skills needs for the sector, recent research under the Erasmus+-funded

project PANTOUR140 highlighted gaps in three main areas for the tourism and hospitality

sectors: digital, green and social skills. The sector must address current and future skills gaps

through upskilling and reskilling, especially in response to technological change, sustainability

pressures, labour shortages, demographic change, and increasing cultural diversity in

workplaces. Digital skills are universally essential across tourism businesses, while green skills

support sustainable tourism practices and social and intercultural skills are increasingly

important for diverse teams and customer needs. At the same time, investment in workforce

digital skills has remained limited: In 2022, 9.9% of enterprises with at least 10 employees in

138 European Parliament and Council of the European Union, ‘Directive 2014/36/EU on the Conditions of Entry

and Stay of Third-country Nationals for the Purpose of Employment as Seasonal Workers’, OJ L 94, March

2014. 139 Eurostat, Authorisations issued for the purpose of seasonal work by economic sector, sex and citizenship,

HORECA sector (accommodation and food service activities), 2022–2025 (2025 preliminary results),

accessed November 2026. 140 PANTOUR, ‘Research’, Next Tourism Generation Skills Alliance, accessed November 2026.

50

accommodation and food services and travel agency services provided ICT training to their

personnel141.

The PANTOUR project, which concluded work in 2026, developed several new future-oriented

occupational profiles intended to help the sector adapt to digital, sustainability and social

challenges and remain attractive to workers. The most recurrent skills needs include data

analytics, use of digital technologies, digital marketing, problem-solving in digital contexts,

sustainability management, environmental compliance, sustainable tourism and supply chains,

food waste management, communication, customer orientation, equality and inclusion, cultural

intelligence, critical thinking, adaptability, responsible leadership and strategic leadership.

Although some occupational profiles may become stand-alone roles in larger organisations,

many micro-enterprises are more likely to integrate these responsibilities into existing jobs.

Overall, the profiles are designed to meet tourism sector needs up to 2030 and beyond.

As a response to labour and skills gaps across all sectors of the EU jobs market, the EU has

launched multiple initiatives, including:

• The EU Pact for Skills and its large-scale skills partnership for tourism142.

• The Action Plan on labour and skills shortages in the EU143.

• The Union of Skills to support upskilling, reskilling and recruitment at all levels144.

• Tools such as the EU Talent Pool and initiatives like Talent Partnerships with certain

third countries seek to attract skilled non-EU workers145. Tourism is one of the priority

sectors under the Talent Partnerships between some EU Member States and Morocco,

Egypt and Tunisia, for example. Hiring non-EU seasonal workers working across

Member States could be promoted in such a way as to effectively employ and retain

third-country talent. See Section 3.4 for more detail.

• The Seasonal and Fair Employment (SaFE) Blueprint146 for tourism is intended to

provide Member States with practical, modular and sector-specific guidance for

designing new, or strengthening existing, seasonal labour-mobility schemes in line with

the Seasonal Workers Directive. It covers the full mobility cycle, from recruitment

through swift admission and worker protection to return, with particular attention to

ethical recruitment, decent living and working conditions and the prevention of labour

exploitation.

• Skills Portability Act147 for improving mobility in the Single Market and attracting

talent from third countries.

141 European Commission, ‘Transition Pathway for Tourism: Taking Stock of Progress by 2023’, Directorate-

General for Internal Market, Industry, Entrepreneurship and SMEs, September 2024. 142 European Commission, ‘Pact for Skills’, accessed November 2026. 143 European Commission, ‘Labour and Skills Shortages in the EU: An Action Plan’, COM°(2024)°131 final,

March 2024. 144 European Commission, ‘Union of Skills’, accessed November 2026. 145 European Commission, ‘EU Talent Pool’, Directorate-General for Migration and Home Affairs, June 2026. 146 Migration Partnership Facility (MPF), Seasonal and Fair Employment Blueprints (SaFE), August 2025 -

November 2026, accessed November 2026. 147 European Commission, Proposal for a Regulation of the European Parliament and of the Council on

portability of qualifications and skills and amending Regulation (EU) 2018/1724 (‘Skills Portability Act’),

COM°(2026)°992 final, 2026/0274 (COD), September 2026.

51

• Industry-led training programmes can also serve as models for upskilling and reskilling

workers148.

The EU Pact for Skills strengthens collective action on skills development by all

stakeholders through dedicated (sectoral) skills partnerships. At EU level, large-scale skills

partnerships (LSPs) set up a shared engagement model for collective action where major

players in industrial ecosystems and value or supply chains, including associations, social

partners, relevant public authorities and SMEs, commit to cooperate and invest to provide

upskilling and reskilling opportunities for people of working age across industrial ecosystems.

The EU Pact for Skills LSP for tourism began operating in 2022 and has brought together over

100 members under this shared engagement model. Members meet regularly to exchange

information, share best practices, and dedicated working groups have recently focused on

specific topics such as accessibility, national and regional skills partnerships and the

development of a future EU Tourism Academy. The LSP is also supported by the work of an

Erasmus+ Alliances for Innovation project (FuTourAlliance)149 aimed at transforming the

European tourism sector through robust, future-focused skills development. The project builds

on the legacy of projects like PANTOUR and the Centres of Vocational Excellence (CoVE)

project TourX150 and brings together a broad multi-country partnership of industry, education,

and policy actors to deliver a comprehensive upskilling and reskilling agenda. The project

addresses digital, green, and inclusive competences, with a strong emphasis on AI, robotics,

and new occupational profiles - driven by cutting-edge online micro-courses and work-based

learning opportunities. The initiative prioritises workforce resilience, social dialogue, and

sustainability in response to sectoral challenges such as staff shortages, digital transition, and

environmental imperatives.

Talent needs relate as much to technical and technology skills (such as data analytics, business

analytics, green regulatory compliance and financial literacy) as to creative, inter-personal,

hospitality, customer service and language skills, as described above.

Examples:

EU Pact for Skills Tourism Large Scale Partnership151 – The Tourism Large Scale

Partnership (LSP) is coordinated by the European Federation of Rural Tourism (Ruraltour) and

the European Association of Institutes for Vocational Training (EVBB). It has a dedicated

Management Committee, which is composed of representatives of social partners, the teaching

and training sector, industry and the public sector. Four thematic working groups focus on the

following areas: skills partnerships, cooperation models between the public sector and the

tourism industry, special groups and their needs, and training implementation in practice.

Upskilling and reskilling by LSP member ENAIP Veneto152 – In 2025, ENAIP Veneto

supported lifelong learning through the provision of both initial training and adult education,

including upskilling and reskilling courses across a wide range of sectors. Under the Erasmus+

TourX Centres of Vocational Excellence (CoVE) project, ENAIP Veneto coordinated the

148 TUI Care Foundation, ‘TUI Academy’, accessed November 2026. 149 FUTOUR Alliance, ‘FUTOUR Alliance’, PACTS4ALL, accessed November 2026. 150 TOUR-X, ‘The CoVE for Hospitality That Caters to Your Skills Needs’, accessed November 2026. 151 European Commission, ‘Tourism Ecosystem and Large-Scale Skills Partnerships (LSPs)’, Pact for Skills,

accessed November 2026. 152 ENAIP Veneto, ‘Organisation’, accessed November 2026.

52

implementation of a train-the-trainers package and contributed to the development of a modular

student training pathway delivered through an e-learning platform, which enables young people

and adults to gain micro-credentials upon successful completion of each module, supporting

flexible and targeted skills development.

Strengthening cooperation on tourism skills Academy

Despite these efforts, the tourism labour market still lacks workers with the right skills to

support the sector153. European countries have a tradition of excellence in tourism training and

education, with an impressive list of established schools and academic curricula. Joining forces

and building common approaches in training and recognition at EU level usefully complements

action at regional or national level and addresses needs of a cross-border nature.

Building on the assessment of existing data154, evidence of skills shortages in the EU tourism

and hospitality sectors155, the outcomes of EU-funded projects on skills as referenced below,

and the Review of EU Skills Academies, the Strategy proposes establishing an EU Tourism

Academy hosted on the existing EU Tourism Platform. To avoid unnecessary duplication of

effort, ensure complementarity and allow for rapid rollout, the Academy will rely on a network

of existing national tourism institutes, vocational education and training (VET) providers and

other relevant stakeholders, who will help shape course content in response to the needs and

priorities of the tourism ecosystem. Member States’ competence in education, training and

tourism shall be fully respected.

The EU Tourism Academy would build on the modern, common training programmes

developed through EU-funded projects (PANTOUR156,, relevant Centres of Vocational

Excellence (CoVEs) such as Tour-X157, FuTourAlliance158, D3Hub159), work undertaken

within the Pact for Skills Large-Scale Skills partnership for tourism and private initiatives that

align with current and future needs of the tourism labour market. Needs-based training content

will be collected via these projects, together with experts from academia and industry, as well

as providers of vocational education and training (VET), under the umbrella of the EU Tourism

Alliance in a dedicated Tourism Academy Working Group. This Working Group will be set up

under the EU Tourism Alliance and composed of representatives of the network, including

relevant Member States’ authorities, industry and EU-funded skills project coordinators. In

parallel, a platform connected to the EU Tourism Platform will be developed to host and

deliver short training courses to job seekers and people working in tourism and hospitality

enterprises. The training will be made widely available and accessible, free or affordable to

learners. Modular, stackable courses for personalised learning will be offered in blended

delivery formats – the national tourism institutes and vocational training institutes participating

in the network may choose to deliver the agreed training content on-site. The aim is also to

raise awareness and understanding of the potential of vocational education and training in

153 European Commission, ‘Labour and Skills Shortages in the EU: An Action Plan’, document

COM°(2024)°131 final, March 2024. 154 European Commission, ‘Labour and Skills Shortages in the EU: An Action Plan’, document

COM°(2024)°131 final, March 2024. 155 Eurofound, ‘Sustainable Tourism in a Digital Age: Preparing the Tourism Sector for the Twin Transitions’,

accessed November 2026. 156 PANTOUR, ‘PANTOUR’, Next Tourism Generation Alliance, accessed November 2026. 157 TOUR-X, ‘The CoVE for Hospitality That Caters to Your Skills Needs’, accessed November 2026. 158 EfVET, ‘FUTOUR Alliance’, accessed November 2026. 159 European Commission, ‘D3HUB: Data-Driven Transition in European Tourism’, Transition Pathway for

Tourism, accessed November 2026.

53

promoting and supporting the employability of people in the tourism sector, productivity and

lifelong learning.

A network of vocational and higher education institutions will be established to support the

development of the training material, and to deliver the training courses on-site on a voluntary

basis. Ultimately, learners who complete a full training module should have access to a

recognised European Digital Credential linked to the EQF and ESCO and validated by the

industry, comparable by employers and portable across Member States.

To support a diverse and resilient workforce, training content will systematically embed

equality, non-discriminatory and inclusion principles. This includes fair working conditions,

workplace diversity and accessibility to enhance career prospects across all tourism subsectors.

Strengthening the tourism skills base is therefore relevant across an ecosystem employing more

than 20 million people, including 13.4 million people in the core tourism industries. The EU

Tourism Academy will in particular support workers, job seekers, tourism SMEs and education

and training providers in responding to changing skills needs.

Fair and attractive working conditions

Despite the strong recovery of European tourism after the COVID-19 pandemic, persistent

skills gaps and labour shortages – particularly in hospitality, with an estimated 10% of jobs

unfilled – continue to undermine the sector’s competitiveness across several EU Member States

and regions. Tourism with its specific needs is a challenging workplace, not least due to

seasonality and service requirements. But it is also a sector promising a wide variety of careers,

creativity, independence and personal development. Tourism offers fulfilling jobs in “places

where others go for holidays”.

In 2023, the Commission launched an EU-wide awareness-raising campaign on tourism jobs

and skills, with material available in all EU languages, to help address labour and skills

shortages during the summer and winter seasons160. The campaign generated millions of online

impressions and resulted in high engagement by tourism stakeholders, particularly during the

summer season.

Acknowledging evident differences, tourism and transport jobs show many similarities,

including the service nature, cross-border aspects, mix of technical and personal skills, as well

as a mix of educational levels. The tourism sectoris characterised161 by a high concentration

of small and microbusinesses, high levels of seasonality, low qualification levels, a high level

of part-time work and a high share of migrant workers. It demands considerable flexibility

regarding shift patterns, and workers can experience stress related to the high levels of

consumer demand, particularly during peak season, and from some physically demanding

tasks. Against this background, the Commission launched in 2026 a studyto assess working

conditions in transport and tourism.

160 European Commission, ‘Jobs and Skills in Tourism’, Directorate-General for Mobility and Transport,

accessed November 2026. 161 Eurofound, Rodríguez Contreras, R., Weber, T. and Adăscăliței, D., Sustainable tourism in a digital age –

Preparing the tourism sector for the twin transitions, Publications Office of the European Union, December

2025.

54

In addition, the Fair Labour Mobility package adopted on 15 September 2026 is designed to

improve the mobility of workers within the Union by addressing administrative, legal, and

social security challenges. Its main goals are to simplify procedures, enhance enforcement, and

ensure fair working conditions for mobile and posted workers, including third-country

nationals, while supporting businesses and public authorities in compliance. The Skills

Portability initiative (SPI), as part of this package, will facilitate the portability of qualifications

and skills between Member States, including for tourism qualifications and skills. The SPI

implements a coordinated approach with regard to digitalisation and the use of wallets, required

to ensure interoperability and reduce barriers for workers to transmit and/or for employers to

receive and read a digital qualification.

3.1.2 A data-driven sector

Mario Draghi’s Report on European Competitiveness162 calls for a new growth model built on

knowledge and innovation; one that translates Europe’s structural strengths into globally

competitive industries. For tourism to successfully sustain its structural strength, data, reliable

statistics, and technology need to be fully integrated into decision-making and daily operations

of public authorities at all levels and private stakeholders, notably destinations and SMEs.

In the targeted and open public consultations, respondents consistently prioritised technology

and data. This includes enhanced data access, sharing and management; personalised and AI-

driven experiences; and smart destination concepts and Internet of Things integration. A strong

signal of support for EU action on digitalisation, AI and the European tourism data space.

While the uptake of advanced digital technologies among tourism SMEs is increasing, it also

remains uneven. According to the European Monitor of Industrial Ecosystems, 37% of

surveyed tourism SMEs used cloud technologies in 2024, up from 25% two years earlier, while

23% had adopted artificial intelligence, up from 8%. By contrast, the use of big data remained

more limited, at 11.5%163.

The volume and variety of tourism data are also expanding rapidly as tourism becomes

increasingly digitalised. In 2025 alone, 951.6 million guest nights in the EU were booked in

short-stay accommodation through Airbnb, Booking and Expedia, an increase of 11.4%

compared with 2024164. At the same time, relevant tourism data remain dispersed across public

authorities, businesses and digital platforms, while differences in granularity, timeliness,

accessibility and interoperability limit their combined use for destination management and

business decision-making165.

All tourism specific work strands rely on the EU’s regulatory digital policy framework

including, but not exclusively, the Digital Markets Act (DMA)166, the Digital Services Act

162 European Commission, The Future of European Competitiveness: A Competitiveness Strategy for Europe,

Mario Draghi, September 2024. 163 European Commission, ‘Report on the Implementation of the European Tourism Agenda 2030’, document

COM(2025) 763 final, December 2025; European Commission, European Innovation Council and SMEs

Executive Agency, Technopolis Group, Izsak, K., Markianidou, P., Marinelli, E. et al., ‘Monitoring Industrial

Ecosystems – Tourism – Analytical Report – 2024 Edition’, Publications Office of the European Union, May

2025. 164 Eurostat, ‘Tourism Nights Booked via Platforms Hit Nearly 1 Billion’, April 2026. 165 OECD, ‘Using Alternative Data Sources and Tools to Measure and Monitor Tourism’, OECD Tourism

Papers, No. 2025/11, OECD Publishing, Paris, June 2025. 166 European Commission, ‘The Digital Markets Act (DMA)’, accessed November 2026.

55

(DSA)167, General Data Protection Regulation (GDPR)168, the Data Act169 and the AI Act170,

as well as the EU Digital Identity environment171. EU data and AI rules play an important role

in building the Common European Tourism Data Space (see below) and supporting innovation

in destinations and businesses, and the EU Model for Tourism Management (see below). The

DMA and DSA are particularly important for the broader tourism business environment, while

EU Digital Identity Wallets will support persons and businesses along the travel chain.

The DMA is designed to comprehensively address and regulate the power of the largest digital

companies designated as gatekeepers. The promotion of fair competition, transparency and

innovation in the online search sector is one of the key enforcement priorities of the DMA. The

European tourism ecosystem is heavily impacted by digitalisation and is reliant on online

search engines. The DMA contributes to allowing European tourist operators to increase their

visibility, optimise their distribution channels and engage with their customers more

effectively. For instance, the DMA imposes on online search engines, among others, the

obligation to apply fair, reasonable and non-discriminatory conditions of access and prohibits

gatekeepers from treating its own products and services more favourably in ranking than

similar products and services offered by third parties. The DMA also has a provision that bans

the use of parity clauses. This ensures that tourist operators, like hotels, have regained pricing

freedom outside of the platforms of the gatekeepers.

The Digital Services Act (DSA) strengthens tourism by making online travel and

accommodation platforms safer, fairer, and more transparent for EU users. Travellers booking

through platforms benefit from clearer information on pricing, fees, cancellation policies, and

terms and conditions, as well as more transparent advertising that is properly labelled and

explains who placed it and why, while exploitative targeting based on protected data or aimed

at minors is banned outright. Very Large Online Platforms face extra safeguards, including

yearly risk assessments, mitigation and crisis-response measures, and public ad repositories,

and the European Commission actively enforces compliance. The DSA also gives travellers

stronger recourse over content disputes, such as inaccurate or unfair reviews: they can use a

platform’s free internal complaint system (Article 20), turn to certified out-of-court dispute

resolution bodies (Article 21), flag illegal content through the notice-and-action mechanism

(Article 16), and ultimately complain to their national Digital Services Coordinator. Together,

these measures build greater trust in online booking, giving travellers more confidence,

protection, and accountability throughout their journey.

A common European Tourism Data Space

Data – access, sharing and use – is a core success factor for tourism in Europe, for smart and

pro-active management capabilities as well as for the ability to react to market needs, trends

and crises. A functioning and trusted data environment is also a major condition for active and

effective application of AI tourism. The comprehensive deployment of a jointly overseen

common data space is therefore essential and a matter of urgency for EU Member States,

167 European Commission, ‘The Digital Services Act’, accessed November 2026. 168 Regulation (EU) 2016/679 on the Protection of Natural Persons with Regard to the Processing of Personal

Data and on the Free Movement of Such Data (General Data Protection Regulation)’, Official Journal of the

European Union, May 2016. 169 European Commission, ‘The Data Act’, accessed November 2026. 170 European Commission, ‘AI Act’, accessed November 2026. 171 European Commission, ‘EU Digital Identity Wallet’, accessed November 2026.

56

regions and the private sector; any delay or insufficient levels of commitment would

significantly weaken European tourism, its businesses, workforce and destinations.

As set out in the 2023 Communication of the European Commission Towards a Common

European Tourism Data Space: boosting data sharing and innovation across the tourism

ecosystem172, the Tourism Data Space will provide the essential framework for sharing high-

quality, interoperable and timely data, with the goal of supporting tourism businesses and

DMOs, and ultimately providing better information and services for travellers. The objective

of the Data Space is to combine technical standards for interoperability with a governance

structure which invites and allows public and private stakeholders to join efforts to increase

data sharing across data domains, as well as across sectoral data spaces, and data use in the

sector, so as to address three inter-related challenges for tourism across the EU data

interoperability, access to data, and the provision of data by public and private stakeholders,

which may need to be incentivised. Work on the Tourism Data Space is fully aligned with

relevant legislation, including the Data Act and the Interoperability Act173, GDPR and is

integrated into the broader cooperation framework for EU data spaces run by the Commission's

Data Space Support Centre174.

The foundations of the EU Tourism Data Space are already there, with progress already made

with the DEPLOYTOUR175 project and the work carried out by D3Hub176 supporting DMOs

in data management and digitalisation. Now it is essential to increase uptake and participation

for full deployment.

The use of artificial intelligence in the tourism ecosystem

Artificial intelligence (AI) is playing a pivotal role in reshaping Europe’s tourism ecosystem,

impacting virtually every aspect of the sector and the travelling and tourism experience177.

Real-time analytics and predictive modelling can support the management of visitor flows,

reduce pressure on overcrowded sites, and actively promote Europe’s rich diversity of lesser-

known destinations. It helps in protecting cultural and natural heritage and improving the

overall quality of the tourism experience. Advanced tools such asdigital twins and simulation

models can further help destinations anticipate demand, test visit scenarios, optimise mobility

and infrastructure, and manage resources more sustainably. Once tourism content, services,

and offers are digitised, AI can integrate data from multiple sources into interoperable

platforms, allowing public authorities and stakeholders to take informed, holistic decisions,

aligning sustainability objectives with other planning priorities such as crisis preparedness and

resilience. Their use in public decision-making should take account of data quality,

172 European Commission, Towards a Common European Tourism Data Space: Boosting Data Sharing and

Innovation Across the Tourism Ecosystem, COM°(2023)°726, July 2023. 173 Regulation (EU) 2024/903 of the European Parliament and of the Council of 13 March 2024 laying down measures for a high level of public sector interoperability across the Union (Interoperable Europe Act), March 2024. 174 European Commission, Data Spaces Support Centre, European Digital Innovation Hubs Network, accessed

November 2026. 175 DEPLOYTOUR, Deployment of the European Tourism Data Space, European Digital Europe Programme,

October 2024. 176 D3HUB Competence Centre, Data-Driven Destinations Hub, accessed November 2026. 177 OECD, Artificial Intelligence and Tourism: G7/OECD Policy Paper, OECD Tourism Papers, No. 2024/02,

December 2024; G7 Tourism Ministers, G7 Tourism Ministers’ Communiqué, Florence, November 2024.

57

transparency, potential bias and accountability, in line with the applicable EU regulatory

framework.

Beyond destination management, AI drives personalised travel choices: AI tools such as

recommender systems, conversational assistants and translation services or agents can help

travellers discover, plan and navigate Europe’s destinations more easily. At the same time, AI

can support more complete travel planning, including itinerary changes and better matching of

offers to travellers’ needs. AI has great potential to support and encourage the search and

booking of responsible travelling options. However, AI-powered recommendations may also

reinforce existing travel patterns and the concentration of visitors in already popular

destinations178. This requires destinations and businesses to pro-actively address questions of

AI and social media positioning.

For smaller tourism businesses in particular, access to appropriate AI tools and skills can help

reduce the technological gap with larger operators, improve visibility in AI-mediated travel

search and support more efficient business operations. Destinations can benefit from improved

forecasting, visitor-flow management and resource planning, while travellers can benefit from

more personalised and accessible information and services179. The EU Tourism Academy will

also help tourism businesses and workers develop the digital and AI-related skills needed to

benefit from these technologies.

However, the growing use of AI in tourism also brings risks that need to be addressed to ensure

consumer trust and fair competition180.

In line with the EU Apply AI Strategy and its AI First principle, this Strategy views AI not

merely as a technological development, but as a strategic opportunity to strengthen the digital

authority of destinations and EU businesses, making sure that Europe retains control over its

data, narratives, and value creation in the tourism sector. This priority is supported by

horizontal EU data and digital legislation, including the General Data Protection Regulation,

Data Act, the AI Act, the Digital Services Act and recent proposals for a Data Omnibus and

for a Cloud and AI Development Act (CADA). Close cooperation with international partners,

including the OECD, will be beneficial in identifying, testing and developing AI use cases.The

Commission is working with stakeholders on fully embedding tourism into the EU Apply AI

strategy, to identify AI use cases and build a best practice framework for responsible and safe

uptake of AI in tourism.

Example – The EU Digital Identity Wallets and the European Business Wallets181 as

necessary trust framework for agentic AI in tourism

AI is rapidly transforming how Europe travels. AI agents will no longer simply compare

options: they will plan and book entire journeys for travellers, and manage pricing and

178 Andreev, H., Kosmas, P., Livieratos, A. D., Theocharous, A., and Zopiatis, A., Destination (Un)Known:

Auditing Bias and Fairness in LLM-Based Travel Recommendations, AI, Vol. 6, No. 9, 2025, Article 236,

accessed November 2026. 179 OECD, Artificial Intelligence and Tourism: G7/OECD Policy Paper, OECD Tourism Papers, No. 2024/02,

December 2024; G7 Tourism Ministers, G7 Tourism Ministers’ Communiqué, Florence, November 2024. 180 UNESCO, Recommendation on the Ethics of Artificial Intelligence, November 2021. 181 European Commission, European Digital Identity, accessed November 2026.

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customer requests for businesses. However, agentic travel can only become a reality within a

secure trust framework for identifying and authorising AI agents.

A traveller could ask an agent to organise a weekend in the mountains, booking public transport

and bike rental across borders. With the traveller’s consent, the agent would present the

relevant credentials from their Wallet at each step, from buying tickets to checking in at the

hotel. Because agents deal as easily with small businesses as with large platforms, local

providers become more visible, spreading visitors and their spending beyond the usual

hotspots. Making multimodal travel as easy as taking the car is also a strong incentive towards

more sustainable tourism.

Businesses can rely on AI agents authorised through their European Business Wallets, making

it clear which company each agent represents and what it is allowed to do. The result is faster

service and lower costs for businesses, and a seamless journey from booking to arrival for

travellers.

The Commission supports pilots, involving public and private organisations, to test the

integration of agentic AI in the Wallets through selected real-life use cases, building on the

existing European trust infrastructure. This gives Europe an opportunity to strengthen its

competitive advantage in its world-leading tourism sector, assuring visitors from within the EU

and beyond that Europe is a destination of trust and safety.

The Commission explores opening training opportunities to the tourism sector, made available

by the European AI Innovation ecosystem182, including the European Digital Innovation Hubs,

and create links between the AI Skills Academy and the EU Tourism Academy, to explore

complementarities and seek synergies.

Tourism statistics

Eurostat, in close cooperation with the national statistical authorities, provides data on tourism.

Regulation 692/2011 concerning European official statistics on tourism laid down the core

requirements, consisting of two main components:

• data on tourist accommodation, namely capacity and occupancy of tourist

accommodation establishments (for example number of bed places, number of nights

spent). Based on data exchange agreement with major international platforms, Eurostat

also publishes a separate series on short-stay accommodation offered via online

platforms;

• data on tourism trips made by EU residents, including information on destination,

duration, accommodation, transport, expenditure, etc. and data on participation in

tourism.

The European official statistics on tourism give the user harmonised, comparable and regularly

updated data, often available at subnational level, that respects international recommendations

182 European Commission, Ecosystem for AI Innovation in Europe, Shaping Europe’s Digital Future, accessed

November 2026.

59

and guidelines. More information, including an overview of publications, can be found on the

“tourism statistics” section of Eurostat’s website183.

Quality statistics are essential for tourism policy making and data management. Since the entry

into force of the Regulation 692/2011 on Tourism Statistics, the tourism sector and user needs

for statistical information changed very significantly (new business models like

accommodation platforms, unexpected external shocks, the impact of tourism industries on the

environment and on societies), while in parallel the statistical world also evolved towards more

efficient production systems, embracing the possibilities offered by new technologies and by

the digitalisation of industries.

As outlined in the Strategy, a proposal to amend Regulation (EU) 692/2011 is therefore planned

for 2027, with the aim to make European official statistics on tourism fit for the future by better

addressing newly arising user needs and by better integrating new data sources and methods in

the statistical production process. The initiative aims to produce -without increasing the net

burden put on respondents- more complete, more punctual and more cost-efficient statistics on

tourism, including the economic assessment of tourism, and its sustainability. In particular, it

will aim to provide public and private actors with more complete, granular, punctual and cost-

efficient European official statistics on tourism, including alignment with international

standards, better collection of transport-mode choice and seasonal origin-destination flows,

progress on economic and sustainability data, and reducing administrative burden for

businesses. Alternative sources will be explored, such as privately held data, from companies

holding relevant data within or outside the tourism sector, or administrative data from public

authorities. The implementation of Regulation (EU) 2024/1028 on data collection and sharing

relating to short-term accommodation rental services help making more data available on an

important local issue.

Developing the EU Tourism Dashboard

The European tourism sector faces mounting pressures to become more competitive, digitally

enabled and sustainably managed. While the EU Tourism Dashboard already offers a valuable

visual overview of a wide range of indicators, policy makers increasingly need a dedicated,

forward-looking instrument that can translate these data into actionable insights, identify

emerging trends and support the development of evidence-based measures across the Union. A

stronger, data-driven monitoring framework is therefore essential to underpin the Strategy’s

ambition of a resilient, competitive and environmentally responsible tourism ecosystem.

Building on the existing EU Tourism Dashboard’s infrastructure and extending its analytical

scope, the EU Tourism Observatory will provide regular monitoring of headline sustainability

indicators – covering the economic importance of tourism as well as its social and

environmental dimensions – and deliver periodic syntheses of sector-wide trends at EU,

national and regional levels. It may also produce targeted analytical briefs on topics of

emerging policy relevance and pursue research and development activities to integrate new

data sources and methodological advances, including to exploit the potential of the European

Tourism Data Space.

The Observatory will gradually enrich its functionality with interactive visualisations and

repository of analyses and briefs. By doing so, it will transform a descriptive data platform into

183 Eurostat, Tourism Statistics: Publications, accessed November 2026.

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a more proactive knowledge hub, capable of delivering timely, evidence-based guidance to

support the EU’s transition towards a more competitive, digital and sustainable tourism sector.

Supporting technological innovation and travel tech startups

Alongside efforts to streamline regulatory frameworks, it is essential to reinforce the innovation

pipeline so that tourism businesses can fully benefit from a more coherent Single Market

environment. The tourism ecosystem, dominated by SMEs and micro-enterprises, remains

structurally weak in R&D intensity, digital skills and absorptive capacity. This limits its ability

to develop and adopt emerging technologies and fully exploit data-driven opportunities.

Travel-tech startups can act as catalysts in addressing these gaps by developing scalable

solutions for visitor experience, mobility, sustainability and operational efficiency, but they

face persistent barriers related to early-stage finance, skills, market access and real-world

validation. Incubators and accelerators can bridge this gap by providing targeted mentoring,

access to sector-specific data, testbeds and pilot environments, and connections to investors,

destinations and established industry players.

A 2026 OECD paper, undertaken at the request of the European Commission to inform the

Strategy, mapped around 70 tourism incubators and accelerators across OECD countries and

EU Member States. It found a diverse and growing support landscape, with programmes

operating at European, national and local levels and often focusing on digitalisation and

sustainability. However, most initiatives concentrate on short-term, early-stage support, such

as competitions, bootcamps and innovation challenges, while fewer offer sustained assistance

to help startups develop and scale up their solutions. The paper also highlights fragmented

support structures, limited opportunities for scaling up, and the need for stronger links between

startups, established tourism businesses and investors. It recommends better coordination

between programmes, more continuous support pathways and improved monitoring of their

results184.

EU support for synergies among travel-tech incubators and accelerators can reduce

fragmentation across national ecosystems, facilitate cross-border scaling of innovative market-

ready solutions, and ensure that investments in European data infrastructures and data spaces

generate tangible economic value for the wider tourism ecosystem.

European Digital Innovation Hubs (EDIHs)185 provide local innovation support for companies

of all size and targeted to local needs and particularities. Tourism is already one of the

economic sectors addressed by some of the EDIHs. the Commission will explore options to

develop tourism relevant operational connections across the network of EDIHs and with

interested partners of the wider ecosystem. Connecting the Common European Tourism Data

Space to tourism focused EDIHs as a gateway to destinations and (M)SMEs will be a particular

priority.

European Digital Identity Wallets (EUDI Wallets) will be deployed across the European Union

by December 2026 and will contribute to a more integrated European tourism. The EUDI

Wallets can be used across the travel journey, for example when booking flights, renting a car,

checking in at hotels, using different means of transport, or accessing museums and other

attractions where identity, eligibility, or ticket verification is required. They will allow users to

184 OECD, Using Incubators and Accelerators to Support Travel and Tourism Start-ups, OECD Tourism Papers,

No. 2026/01, August 2026. 185 European Commission, European Digital Innovation Hubs, accessed November 2026.

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store and present a wide range of digital documents relevant to travel, including driving

licences, vehicle registration and insurance documents, tickets and boarding passes, as well as

disability cards, the new European Disability Card and the European Parking Card for Persons

with disabilities, student and senior cards for access to assistance and discounts, all within a

trusted and interoperable European framework. The Wallets will also enable the secure

exchange of person identification data, allowing users to authenticate themselves and share

only the information necessary for a specific transaction through selective disclosure. In

addition, users will be able to sign documents using qualified electronic signatures, enabling

secure digital completion of contracts, bookings and other transactions with full legal effect.

By simplifying access to tourism services, strengthening trust in digital interactions and

reducing administrative burdens for both travellers and service providers, the European Digital

Identity Wallets will enhance the travel experience and support the digital transformation and

competitiveness of the European tourism sector. In close interaction with the Common

European Tourism Data Space and innovation support (in particular via EDIHs), European

Digital Identity Wallets will support data use across the whole tourism ecosystem. The Wallets

are expected to be important operational elements in the toolbox provided by the future EU

Model for Tourism Management.

The Commission will continue its cooperation with international partners, notably the OECD,

on innovation, AI and data-driven tourism, including through the exchange of good practices

and analytical work to support the digital transformation of the sector.To support travel tech

start-ups, the Commission will explore ways to strengthen synergies between incubators,

accelerators and established tourism actors to maximise the support available to start ups, for

example through matchmaking events.

Examples – successful tourism and traveltech approaches

France Tourisme Tech186 – In 2023, France set up a national programme called France

Tourisme Tech run by the Direction Générale des Entreprises (DGE). It backs travel tech start-

ups through mentoring, open-innovation projects with established operators, public-

procurement training and exposure at trade events. By 2026, three cohorts of start-ups had

passed through it, covering 35 companies working on sustainable tourism, accessibility, visitor-

flow management and data analytics; as of 2026, the DGE reported more than 55 pilots with

industry partners, ten of them industrialised and several projects implemented across the EU.

This initiative also provides a Manifesto for a European Travel Tech ecosystem supported by

Spain, Greece, Austria, Czechia and Hungary, advocating for siloed thinking to be overcome

and calling for a repository of the most promising technological solutions in the tourism sector.

The Manifesto also calls for a European Travel Tech network linking national incubators,

accelerators, clusters and public authorities, together with a dedicated European support

programme modelled on France Tourisme Tech, so that promising firms can scale across the

single market.

Crowd in Motion, Austria187 - Crowd in Motion is a European Digital Innovation Hub

(EDIH), part of the EU network co-funded under the Digital Europe Programme and

coordinated by Salzburg Research. It brings together research institutes, universities,

innovation accelerators, crowd-platform providers and digital fabrication labs running a one-

stop shop to help tourism, mobility, sports, wellbeing and public-sector organisations adopt AI,

186 Direction Générale des Entreprises, France Tourisme Tech, accessed November 2026. 187 Crowd in Motion, European Digital Innovation Hub for Tourism, Sports and Leisure, accessed November

2026.

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the Internet of Things and crowd technology. Support spans from early analysis through

prototyping and field trials to funding advice, with help on digital maturity, skills and building

local innovation networks.

Public Eye - Municipality of Amsterdam, the Netherlands188 – Amsterdam's Chief

Technology Office built the crowd-monitoring system Public Eye, an open-source computer-

vision system that counts how many people are in a public space and how densely they are

packed and which way they are moving, and forecasts crowding before it builds. It is privacy-

by-design. Camera feeds are converted instantly into anonymous counts and heatmaps, no

images are kept beyond a small set of training frames on an encrypted municipal network, and

the system is listed on the city's public AI Register. The aim is to keep busy areas safe and to

inform residents and visitors through digital signs and a public busyness dashboard, not to

identify people or issue fines. Amsterdam developed it with LIFE Electronic and Tapp after no

commercial product at that time could cover a wide area while meeting its privacy standards,

then released it as open source for other cities. The project ran from 2019 to 2021.

CityFlows – European Institute of Innovation and Technology (EIT) Urban Mobility

project189 – The same approach has been tested elsewhere in Europe: the EIT Urban Mobility

project CityFlows ran living labs in Amsterdam, Milan and Barcelona and spun off a crowd-

analytics company, City Analytics. The objective of CityFlows focused on the liveability of

crowded pedestrian spaces through provision of decision-support for the management of

pedestrian flows. Large pilots organized in the City of Amsterdam (ArenA Boulevard &

COVID-19 living lab), Milan (Milano Centrale) and Barcelona (Parc Guell), featured state-of-

the-art crowd monitoring systems and analysis techniques. CityFlows also focusedon creating

an active and involved user-base for CM-DSSs through the education of city officials, security

officers and crowd management organisations regarding the benefits of this type of decision-

support system in the process.

3.1.3 Simplification of the tourism operational environment

Tourism can only flourish through a business-friendly environment, in line with the

Commission’s objective to simplify rules, reduce fragmentation and make the Single Market

work better, as outlined in the Omnibus IV Simplification Package190. The core vision of the

Strategy is to overcome silos across sectors, policies and stakeholders in order to strengthen

innovation and competitiveness, unlock investment and allow small businesses to successfully

manage the green and digital transitions.

While there is currently no comprehensive EU-wide quantification of the cumulative

administrative and regulatory burden borne specifically by tourism businesses, the issue has

emerged consistently in stakeholder consultations and international policy work191. This

evidence gap also reinforces the case for systematically identifying and assessing recurrent

barriers affecting tourism operators across the Single Market.

The consultation results show strong support for EU action to support SMEs and startups,

including to address administrative burden and complexity in accessing finance. The 2026

188 Gemeente Amsterdam, Public Eye, Dutch Algorithm Register, accessed November 2026. 189 EIT Urban Mobility, CityFlows – Second Year, accessed November 2026. 190 European Commission, Omnibus IV Simplification Package, May 2025. 191 OECD, OECD Tourism Trends and Policies 2026, Chapter 2, section “Improving the Enabling Environment

for Tourism Businesses”, pp. 45–48, OECD Publishing, Paris, July 2026.

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Council conclusions on tourism also reflect the need for simplification and administrative

burden reduction. Simpler and clearer rules benefit the entire tourism ecosystem: companies as

much as public authorities, travellers and tourism workers.

A great variety of rules applicable to tourism are enacted at national, regional or local levels.

Additionally, EU legislation also affects the sector, including sustainability-related regulations

adopted under the Green Deal, rules on package travel, passenger rights and digitalisation,

amongst others. To help identify, analyse, and where possible overcome, administrative and

operational burdens encountered by tourism actors, it is helpful to maintain communication

channels across levels of governance and between the private and public sectors. Such

exchanges allow for establishing the sources of burden encountered and help testing remedial

action. For EU level regulation such sectoral intelligence can usefully inform the broader

simplification effort. The Commission will facilitate such communication through a dedicated

EU Simplification Initiative for tourism involving Member States and tourism stakeholders,

in coordination with the existing simplification platform.

Example: Allergen information in restaurants

Authorities from an EU Member State informed the Commission of concerns raised by public

and private entities that the EU Regulation on informing customers about allergens in food was

causing considerable burden in the daily practice of small hospitality establishments. The claim

was that a written record on allergens was always required, making it more difficult to offer

frequently changing menus based on fresh local produce.

Following an informal assessment of applicable EU legislation and consultation with relevant

experts, it was evident that EU law did not require allergen information to be provided

exclusively in writing192. While information on allergens must be available to consumers,

Member States may allow it to be provided orally, subject to national rules193. The perceived

burden therefore resulted from the interpretation or implementation of the legislation rather

than from the EU rules themselves.

VAT rules applying to the travel and tourism ecosystem

The tourism ecosystem as one of the largest service industries in the EU generates about EUR

55 billion of value added tax revenue, or roughly 6% of total EU value added tax revenue. This

results from about EUR 21 billion from supplies covered by the Tour Operator Margin Scheme

(TOMS) and about EUR 34 billion from supplies via disclosed agents194. These correspond to

respectively 2.3% and 3.7% of collected EU value added tax. Passenger transport is also a

major part of the European economy and Single Market, accounting in 2023 for turnover of

EUR 354 billion and for 2.1% of EU GDP, as well as employing over 2.5 million people.

Most of the VAT rules applicable to the travel and tourism sector are outdated and do not reflect

wider developments such as growth in international travel and intra-EU passenger mobility,

digitisation, and increased global competition. Moreover, such rules are interpreted or applied

192 European Parliament and Council of the European Union, Regulation (EU) No 1169/2011 on the Provision

of Food Information to Consumers, October 2011. 193 European Commission, Commission Notice on the Provision of Information on Substances or Products

Causing Allergies or Intolerances, July 2017. 194 Data based on confidential data provided by Member State tax authorities, in addition to Eurostat national

supply, use and input-output tables.

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inconsistently by Member States, which runs the risk to distort competition within the internal

market and as the rules stand, they also affect competitiveness of EU businesses vis-a vis third

countries.

The current, outdated framework gives rise to structural distortions, in particular for B2B

suppliers. Hidden non-deductible VAT for business customers renders the VAT non-neutral

across various business models. Undefined terminology within the legal framework and

fragmented case law of the Court of Justice of the European Union further complicate the

framework and cause unnecessary administrative burden and a competitive disadvantage for

EU tour operators.

On the transport side, land transport providers (such as buses/coaches) are faced with

administrative burden and legal uncertainty originating from a complex framework for the

taxation of cross-border passenger transport.

An updated framework, building on the reform ‘VAT in the digital age’, aims to modernise the

special scheme for travel agents and the VAT rules on passenger transport services with a view

to provide more competitive, fairer, simpler and harmonised VAT rules for the EU tourism

sector.

Transparency of accommodation classification and other quality certification systems

Reliable information about accommodation characteristics is an important factor in traveller

choices. It is also an important means for accommodation providers to design, position and

distinguish their offer. Relevant characteristics can include equipment, services, size,

accessibility, social and environmental commitments, quality and design, amongst others. They

can exist for hotels, hostels, campsites and other accommodation options, and help position the

accommodation offer together with price and location.

Widely known are accommodation classification approaches such as hotel star rating systems.

These quality rating systems are well established, managed locally, regionally or nationally by

public or private entities, e.g. regions, chambers of commerce or accommodation associations.

While cross-border initiatives such as Hotelstars Union195 have contributed to common

standards among participating countries, uptake and comparability of quality rating systems

remains limited, in particular for international travellers.

Other quality labels usually focus on sustainability attributes – sustainable, environmental,

social, accessibility or other – and are awarded after an accreditation and certification process.

They can be managed by private organisations (e.g. Nordic Swan196) or public authorities,

including based on legislation (e.g. EU Ecolabel197). The EU Ecolabel is the official EU

voluntary label for environmental excellence, guiding consumers and procurers towards

sustainable goods and services, while supporting operators in stepping up their efforts to reduce

environmental footprint, optimise operations and reduce costs. As of September 2026, 1051

tourist accommodation services held the EU Ecolabel, an increase of 7% since March 2026,

showing a consistent growth in the uptake of sustainability certification within the hospitality

195 Hotelstars Union, About the Hotelstars Union: System and History, accessed November 2026. 196 Nordic Ecolabelling, Nordic Swan Ecolabel, accessed November 2026. 197 European Commission, EU Ecolabel, accessed November 2026.

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sector, encouraged by consumer demand and incentives provided by the online booking

platforms.

In addition, accommodation quality and experience are rated by users, often as part of services

offered by online intermediaries (e.g. user feedback and reviews on social media and booking

platforms). Such accommodation and hospitality ratings are governed by platform rules, with

platforms themselves subject to the Digital Services Act (DSA). At EU level, a voluntary Code

of Conduct for online reviews and ratings for tourism accommodation198 has been co-

developed with stakeholders from across the tourism ecosystem. These stakeholders represent

diverse perspectives within the industry, including online platforms hosting reviews,

associations of these platforms, accommodation providers and their associations, consumer

organisations, and Destination Marketing Organisations (DMOs). The co-creation process has

been facilitated and supported by regulatory authorities and the Commission. Platforms and

tourism associations are invited to sign up to common definitions and principles, including

measures ensuring transparency, clear complaint procedures, and addressing risks of

inappropriate, illegal and fake content with the aim to improve reliability, comparability and

trustworthiness of online tourism reviews for travellers. The increasing use of generative AI

also raises new challenges for the reliability of online reviews and accommodation listings,

which could be considered in further policy development.

Readability, comparability and, possibly, harmonisation of accommodation information are

recurrent questions discussed in the context of consumer protection, business development,

simplification and tourism development. The aim would be to overcome confusion among

travellers and uneven market conditions for accommodation providers, especially small

businesses operating across borders. However, these systems are deeply anchored in local and

national practices and costs and benefits would need to be carefully evaluated. The process of

negotiating and agreeing the Code of Conduct for online reviews and ratings for tourism

accommodation has also demonstrated that voluntary action involving the broader ecosystem

can yield relatively quick results and ensure transparency, operational flexibility and

adaptability of the process.

In an increasingly digital environment, where online ratings and reviews play an ever-greater

role, the completeness, comparability and reliability of available information have become key

considerations. Stakeholder views differ, with some advocating expanding use of existing

(cross-border) approaches while others advocate for recognition of existing credible schemes.

For this reason, options to make accommodation classification systems and quality labels more

transparent, comparable and easier to understand and use across borders could be evaluated,

while gradually exploring whether similar approaches could be extended to other quality

certification systems.Stakeholders, could help evaluate current frameworks and propose

options and recommendations for added value of accommodation related quality schemes,

gradually explore coverage and improved readability and comparability for users of various

quality and sustainability certification systems, and continue implementing and developing the

Code of Conduct for online reviews and ratings for tourism accommodation, including for

quality ratings and certification schemes.

198 European Commission, Code of Conduct for Online Reviews and Ratings for Tourism Accommodation,

accessed November 2026.

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3.1.4 Funding

Tourism has a long history of funding support from the EU budget. Direct funding for

competitiveness, innovation and modernisation, with a focus on (small) tourism businesses is

typically complemented by funding for local and regional development and other specific

purposes, including the green and digital transitions, skills and employment. Transport

infrastructure essential for tourism has benefited from several EU funding sources, including

the Connecting Europe Facility, Recovery and Resilience Facility, Social Climate Fund, as well

as Cohesion Funds.

Multiannual Financial Framework 2021-2027

Under the current multiannual financing period, tourism is eligible and has benefitted from

funding under 15 financing programmes, including Cohesion Funds, the Recovery and

Resilience Facility (RRF), Horizon Europe, the Single Market programme (SMP), the Digital

Europe Programme (DEP) and Erasmus+.

EU Cohesion Policy (EUR 3.71 billion in EU funding, increasing to EUR 4.87 billion with

national contributions), in particular through the European Regional Development Fund and

its Interreg strand,supports European countries, regions and municipalities in promoting the

green and digital transitions, boosting their long-term resilience and sustainability, and

reinforcing their role in socioeconomic and territorial cohesion and cooperation across borders.

Support has been programmed across 98national and regional Cohesion Policy programmes

in 18 Member States, (with around 50% of the funding support concentrated in Poland,

Hungary, Romania, and Italy), and in 62 Interreg programmes. The tourism ecosystem has also

benefitted from non-targeted support for SMEs, green and digital transition, culture, social

inclusion, social innovation and administrative cross-border cooperation.The Recovery and

Resilience Facility (EUR 13.25 billion) supports tourism in 19 Member Statesprimarily

through investments such as destination upgrading, heritage assets, digitalisation, and SME

modernisation. The main Member States making investments through the RRF are Spain, Italy,

Portugal and Croatia. Among major activities financed are Spain’s “Transformation of the

tourism model towards sustainability” (EUR 1.923 billion) and Italy’s “Funds for the

competitiveness of tourism enterprises” (EUR 1.786 billion), followed by Italy’s

“Attractiveness of small historic towns” (EUR 1.020 billion) and Spain’s “Special actions in

the field of competitiveness” (EUR 920 million).

Reforms typically focus on enabling delivery through financial instruments and

implementation frameworks to channel investment or monitoring and coordination tools as

well as some regulatory updates to improve market functioning. In the tourism domain,

transformation under NextGenerationEU is delivered primarily through investment

programmes (destination upgrading, heritage assets, digitalisation, and SME modernisation),

whereas reforms tend to play a more enabling role. This contrasts with other policy areas

covered by Member States’ Recovery and Resilience Plans (RRPs), such as labour markets,

public administration, or energy markets, where reforms are often a primary lever.

The reforms captured in the tourism ecosystem inventory typically concentrate on the

following set of functions:

• financing instruments that steer public and private investment towards policy goals (e.g.

repayable loan funds targeting innovation, energy efficiency and circular economy);

67

• governance and regulatory frameworks that improve market functioning and service

quality (e.g. professional frameworks for tourist guides or artists, or upgrading

vocational education and training);

• data, monitoring and coordination tools (e.g. tourism data platforms and multi-level

coordination arrangements).

The Single Market Programme (SMP) has launched several tourism focused calls to provide

technical and financial support for SMEs with a total budget of over EUR 48 million covering

the period 2021-2026. These include COVID-19 Recovery Through Sustainable Tourism

Growth and SME Support199 launched in 2021 (EUR 12.4 million); Sustainable growth and

building resilience in tourism – empowering SMEs to carry out the twin transition200 launched

in 2022 (EUR 20.5 million); Transitioning to a more sustainable and resilient ecosystem –

empowering tourism SMEs201 launched in 2023 (EUR 8.5 million) and Supporting sustainable

competitiveness of tourism SMEs202 launched in 2026 (EUR 6.9 million). Additional calls to

support SMEs will be launched under the SMP in 2027.

The Commission also provides technical assistance and learning opportunities to SMEs and

public administrations in tourism. The Enterprise Europe Network (EEN) has a Tourism Sector

Group with 40 active members in 25 countries and regions. Additionally, 51 EU Digital

Innovation Hubs support the travel and tourism sector203. The EU Cluster Collaboration

Platform supports 14 tourism clusters together with 2 Euroclusters204 providing both financial

and technical support for tourism SMEs. By 2026, Erasmus for Young Entrepreneurs205 has

supported 1337 exchanges, where either the new entrepreneur or host entrepreneur’s primary

sector was a hotel, restaurant, tourism or travel service or wellness. Furthermore, the

Commission, with financial support from the European Parliament, developed pilot actions on

digitalisation guidance for the restaurant sector206, mobilised stakeholders to develop Product

Environmental Footprint methods for hotel accommodation, and supported traditional crafts207.

Through the Technical Support Instrument (TSI), the Commission has supported Member

States’ public administrations in designing and implementing reforms, fostering a more

sustainable, resilient, and digital tourism ecosystem. The Digital Europe Programme (DEP)

supports the deployment of the Common European Tourism Data Space, and the upskilling

and reskilling of tourism staff is supported through the Erasmus+ programme. InvestEU208

provides long-term funding by leveraging public and private investment. Support for SMEs,

199 European Commission, COVID-19 Recovery Through Sustainable Tourism Growth and SME Support,

Single Market Programme (SMP-COSME-2021-TOURSME-01), December 2021. 200 European Commission, Sustainable Growth and Building Resilience in Tourism: Empowering SMEs to

Carry Out the Twin Transition, Single Market Programme (SMP-COSME-2022-TOURSME-01), September

2022. 201 European Commission, Transitioning to a More Sustainable and Resilient Ecosystem – Empowering

Tourism SMEs, Single Market Programme (SMP-COSME-2023-TOURSME-01), December 2023. 202 European Commission, Supporting Sustainable Competitiveness in Tourism, Single Market Programme

(SMP-COSME-2026-TOURSME-01), March 2026. 203 European Commission, European Digital Innovation Hubs Network, accessed November 2026. 204 European Circular Economy Stakeholder Platform, ECCP: European Cluster Collaboration Platform, accessed

November 2026. 205 European Commission, Erasmus for Young Entrepreneurs, accessed November 2026. 206 European Digital Innovation Hubs Network, RESTwithEU: Supporting the Implementation of Digital Tools

for Tourism and in the Restaurant Sector, accessed November 2026. 207 European Commission, The Promotion of Handicraft Products and Support of Craftsmen, Pilot Projects and

Preparatory Actions, September 2025. 208 European Commission, InvestEU Programme, accessed November 2026.

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including in tourism, is mainly channelled via local financial intermediaries well placed to

accommodate local needs and particularities. Member States may increase investments via

dedicated Member States compartments. The InvestEU Advisory Hub and the InvestEU

Portal209 offer opportunities for tourism development and investment.

The diversity of EU funding programmes and support instruments can make it challenging for

tourism stakeholders, particularly SMEs and smaller destinations, to identify the opportunities

most relevant to their needs. To facilitate access to information, the Commission provides the

Guide on EU funding for tourism210, which brings together information on relevant EU

programmes, links to their websites and a selection of open and upcoming tourism-related calls.

The EU Tourism Platform complements the Guide by providing information on funding

opportunities, practical tools and results from EU-supported projects, helping stakeholders

learn from previous initiatives and identify support relevant to their needs.

Support by the European Investment Bank (EIB) Group

The EIB Group supports investments by tourism businesses and by public or private entities

involved in the development of tourism destinations where these contribute to its applicable

public policy goals. While tourism is not a standalone EIB Group public policy goal, tourism-

related investments may be considered under several relevant policy areas, depending on their

objectives, characteristics and expected impacts.

Relevant eligibility areas include access to finance for SMEs and mid-caps, climate action and

environmental sustainability, innovation and digitalisation, economic and social cohesion,

urban and regional development211, cultural heritage and enabling infrastructure. Investments

may include the renovation, expansion and modernisation of tourism assets, improvements in

energy and water efficiency, renewable energy installations, climate adaptation and resilience

measures, digital solutions, cultural facilities, sustainable mobility and infrastructure benefiting

asset owners and operators, visitors and local communities.

Given the predominance of smaller businesses in the tourism sector, EIB Group support is

provided mainly through financial intermediaries212, including commercial banks, national

promotional banks and institutions, leasing companies and investment funds. Instruments

include loans, guarantees, risk-sharing, securitisation and equity financing. Decisions on

individual investments are delegated to the financial intermediary, subject to the EIB Group's

eligibility criteria and the intermediary's own credit procedures.

Larger tourism-related investments may also be considered selectively for direct EIB financing.

Particular consideration is given to their contribution to applicable public policy goals,

integration into the local economy, support for local supply chains and employment, climate

resilience, resource efficiency and longer-term benefits for destinations and local communities.

Where relevant, investments may also promote sustainable and innovative procurement

practices, supporting local suppliers and strengthening the resilience and competitiveness of

tourism-related value chains.

209 European Commission, InvestEU Programme, accessed November 2026. 210 European Commission, Guide on EU Funding for Tourism, accessed November 2026. 211 European Investment Bank, Regional Development, accessed November 2026; European Investment Bank,

Urban Development, accessed November 2026. 212 European Investment Bank, Loans for SMEs and Mid-Caps, accessed November 2026.

69

The EIB Advisory function may consider tourism-related requests under applicable mandates.

Subject to the objectives, eligibility criteria and resources of the relevant mandate, Advisory

support helps public authorities, financial intermediaries and project promoters develop

integrated sustainable tourism strategies, identify and structure sustainable investment

programmes, build investable project pipelines, and strengthen institutional and

implementation capacity. Support may also include the design of financial instruments and

aggregation mechanisms, as well as the preparation of investments in areas such as energy

efficiency, resilience to climate-related and other hazards, regional development, sustainable

mobility, cultural heritage and urban regeneration. By improving project readiness and helping

mobilise public and private investment, EIB Advisory can play a catalytic role in connecting

sustainable tourism priorities with appropriate financing opportunities. The availability, scope

and form of support are assessed on a case-by-case basis. Advisory support does not constitute

a commitment to subsequent EIB Group financing.

The EIB Group also contributes indirectly to the objectives of the Strategy through investments

that do not necessarily involve tourism-sector counterparts but help make tourism activities

and destinations more robust, resilient and sustainable over the long term. These may include

investments in coastal resilience, in line with the EU Strategy for Coastal Communities213, and

in broader resilience and disaster preparedness addressing multiple hazards affecting

infrastructure and the built environment in tourism regions.

The tourism industry is particularly exposed to external shocks because of its dependence on

visitor mobility and discretionary spending. Travel restrictions, pandemics, natural hazards,

security incidents or economic downturns can lead to sudden declines in demand while

businesses continue to face high fixed operating costs. SMEs may be particularly vulnerable

due to their smaller scale, limited financial buffers and concentration in specific destinations

or customer segments.

The EIB Group has experience in contributing to temporary, economy-wide responses through

financing, guarantees and risk-sharing instruments. These measures are generally horizontal,

supporting eligible businesses across affected sectors rather than constituting tourism-specific

facilities, although tourism businesses may benefit where they meet the relevant requirements.

Beyond the immediate response, the EIB Group can provide long-term advisory and financing

support for reconstruction, preparedness and risk reduction. This may include helping tourism-

dependent regions adapt their infrastructure and development models to structural changes,

including evolving climate risks and other long-term pressures. Such support can be

particularly relevant for regions where tourism is an important source of employment and

income, including cohesion regions. The EIB Group’s contribution would form part of a

broader coordinated response and remain subject to the applicable mandates and institutional

framework.

213 European Commission, Communication from the Commission to the European Parliament, the Council, the

European Economic and Social Committee and the Committee of the Regions: EU Strategy on resilient,

prosperous and liveable coastal communities, COM(2026) 530 final, June 2026.

70

Examples:

Financing and investment operations signed by the InvestEU implementing partners214 include

tourism as an eligible area, in addition to tourism-related areas such as culture, the creative

sectors and media, the environment, industrial site rehabilitation or mobility.

In July 2025, the EIB signed agreements with Buenavista Infrastructure and Arcano

Partners to channel via financial intermediaries a total of EUR 410 million to new urban

development projects (including affordable housing) and others related to sustainable

tourism215. The agreements were made possible by a contribution from the Regional Resilience

Fund, part of Spain’s Recovery, Transformation and Resilience Plan and financed by

NextGenerationEU. The intermediaries selected by the EIB will assess investment

opportunities across the country to promote urban development in areas such as affordable

housing, education, healthcare, social and cultural infrastructure, sustainable mobility, waste

and water management, energy efficiency and sustainable tourism.

The EIB is providing a EUR 100 million loan to Austrian tourism and leisure-industry lender

Österreichische Hotel- und Tourismusbank GmbH (ÖHT), with EUR 50 million signed in

December 2025 and a further EUR 50 million in August 2026216. ÖHT will on-lend the EIB

financing to SMEs in Austria's tourism and leisure sector. These are expected to include family-

run firms investing in energy efficiency in buildings (building envelope, technical systems),

renewable energy generation and infrastructure for low-carbon transport. The SMEs will

benefit from favourable pricing for their productive investments. To maximise local impact,

tourism businesses are supported to expand their use of support services, such as construction,

maintenance, and logistics, to drive jobs and growth outside their own activity while offering

opportunities for the next generation.

Support by the European Bank for Reconstruction and Development (EBRD)

The European Bank for Reconstruction and Development (EBRD) is a multilateral

development bank active across three continents, with a strong private-sector focus. In the EU,

the Bank operates in 10 Member States across Central Europe, the Baltic states and South-

eastern Europe. Under its Real Estate Sector Strategy 2025–2029, the EBRD combines

tailored financing, including debt, equity and mezzanine instruments, with advisory services

and technical assistance to help tourism companies invest, modernise and become more

competitive, sustainable and resilient. Its financing focuses on three priority areas: the green

transition, economic inclusion and stronger local value chains.

First, the EBRD accelerates the green transition by financing high-quality, sustainable

tourism assets, including the renovation and modernisation of existing facilities. Its activities

help improve environmental performance and resource efficiency, reduce the environmental

footprint of tourism operations, strengthen climate resilience and develop more sustainable

tourism infrastructure.

Second, the EBRD promotes economic inclusion by helping tourism companies create quality

jobs, improve working conditions and invest in skills development, vocational education and

career progression. It also supports employment opportunities for women, young people and

214 European Commission, InvestEU Operations List, accessed November 2026. 215 European Investment Bank, New Boost for Regional Resilience Fund Rollout: Financing Affordable

Housing, Urban Development and Sustainable Tourism, June 2025. 216 European Investment Bank (EIB), OHT Loan for SMEs, project reference 20240758, December 2025.

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disadvantaged groups through inclusive recruitment, equal opportunities and improved access

to management positions. Third, the EBRD maximises tourism’s wider economic impact by

strengthening inclusive local value chains. It encourages tourism operators to source more

goods and services from local businesses, including SMEs in food and agriculture, transport,

construction, cultural industries and other services. This fosters local entrepreneurship, creates

opportunities in surrounding communities and retains more tourism revenue within local

economies. Across these three areas, the EBRD provides advisory support and technical

assistance to help tourism companies meet the quality and operational requirements of larger

operators, and adopt stronger corporate governance, operational and sustainability standards.

Examples:

The Destination Management Plan in Rhodes and Santorini217 was a pilot programme run by

the EBRD from May to October 2019, together with the Hellenic Ministry of Tourism and the

Chambers of Commerce of the Cyclades and Dodecanese, and funded by the European Union.

It addressed the challenges of rapid tourism growth in Rhodes and Santorini, with the aim of

increasing the benefits of tourism for the sector and for local communities. The programme

combined research on travel trends and tourism supply and demand, workshops and working

meetings with local stakeholders, and interviews and online questionnaires with local

authorities, businesses, residents and recent visitors. These inputs were used to produce two

destination management plans, one for each island, plus a guide to help other Greek

destinations develop similar plans. The results were to be presented to the local communities

and to audiences in three more Greek destinations, including Athens, to support sustainable,

long-term tourism development.

On 3 March 2026, the EBRD announced a EUR 15 MLN loan to the owner of Terme Čatež,

Slovenia’s largest natural thermal destination and a family-friendly, affordable leisure

complex.218 The loan will fund a capital investment programme covering hotel refurbishment,

upgrades to water treatment and wastewater management (including groundwater pumping),

and targeted energy efficiency improvements. These measures aim to improve service quality,

resilience and competitiveness, and to make the destination more appealing year-round. The

project also includes training and skills programmes for staff, run with local educational

institutions, and supports a lower-carbon tourism model built on domestic and regional travel

rather than long-haul visitors. The EBRD describes it as its first tourism investment in Slovenia

and its first inland tourism project in the Adriatic region. The EBRD Real Estate Sector landing

page provides further information on relevant projects.

Drawing lessons for strengthening future policy and funding links

Analysing the funding approaches under the MFF 2021-2027 and earlier envelopes confirms

the need to increase the impact of tourism funding on the ground, by strengthening the link

with the common EU policy objectives of this Strategy, the European Agenda for Tourism

217 European Bank for Reconstruction and Development (EBRD), Destination Management Plan, accessed

November 2026. 215 European Bank for Reconstruction and Development (EBRD), “EBRD Supports Sustainable Tourism in

Slovenia”, accessed November 2026.

72

2030 and the Council Conclusions on Building a sustainable and competitive tourism for the

future of 28 May 2026.

A 2021 Special Report from the European Court of Auditors (ECA)219 aimed at providing input

for “the Commission’s work in defining a comprehensive 2030 tourism strategy with medium-

and long-term objectives” and “to contribute also to a better design and implementation of the

EU financial support to tourism investments in the period 2021-2027 with a view to achieving

effective and sustainable results.”220 The audit looked into whether the Commission made an

effective contribution in supporting the EU’s tourism industry and complementing Member

States’ actions in this sector during the 2014-2020 period. It reviewed whether the

Commission’s tourism strategy addressed the needs of the tourism sector effectively and was

regularly updated to reflect changing priorities. The ECA analysed whether the European

Regional Development Fund (ERDF) financial support to public tourism investments was

consistent with existing EU, national and regional tourism strategies and whether it has been

sustainable and focussed on investments that add value beyond the project itself. The ECA

recommended that “the Commission should:

• set out a new strategy for the EU tourism ecosystem, which explicitly aims at supporting

investments that contribute to a more sustainable form of tourism; and

• encourage Member States to apply selection procedures for ERDF-funded tourism

investments to support this new strategic orientation.”

The Commission accepted the ECA’s recommendations, feeding into the design of the Tourism

Transition Pathway and encouraging Member States to adopt a more strategic and efficient

approach to support tourism through ERDF in the 2021-2027 period in line with the Pathway.

Although made against the background of the time of the audit, the Court’s observations are

still valuable for the design of the current Strategy. This translates in particular into the

Strategy’s focus on actions of core EU value-added, connecting with local, regional and

national activities, e.g. the EU Tourism Academy, the European Tourism Data Space, the EU

Tourism Alliance and the integrated financing paths for tourism outlined further below.

In 2026, the Commission supported a study of EU tourism funding over the period 2019-2022,

which assesses how EU funding reaches the tourism ecosystem, identifies strengths and

shortcomings in existing funding mechanisms, and puts forward recommendations for future

funding programmes. It shows that funding was channelled through two distinct but

complementary routes: direct management and shared management.

Under direct management, tourism support was embedded in broader programmes such as

Horizon/Horizon Europe, COSME and the Single Market Programme, Creative Europe,

Erasmus+, Digital Europe and LIFE. Tourism-related direct funding was therefore not

organised as a stand-alone portfolio, but as a cross-cutting set of projects financed under wider

policy objectives such as innovation, SME competitiveness, culture, skills and the digital

transition.

The direct management evidence points to a portfolio with high strategic relevance but low

penetration within the largest programmes. The direct management beneficiary profile reveals

219 European Court of Auditors, EU Support to Tourism: Need for a Fresh Strategic Orientation and a Better

Funding Approach, Special Report No. 27/2021, December 2021. 220 European Court of Auditors, EU Support to Tourism: Need for a Fresh Strategic Orientation and a Better

Funding Approach, Special Report No. 27/2021, December 2021.

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a strong concentration in organised intermediaries and public actors. This indicates that direct

management largely reached tourism through actors with stronger project-development

capacity, proposal-writing skills and network access.

Funding by tourism subsector was also highly concentrated: attractions and cultural sights

absorbed approximately EUR 48.9 million, and tourist information and guide services around

EUR 11.8 million, while accommodation, travel agencies, tour operators, bars and restaurants

and passenger transport each remained below EUR 2 million. Attractions and cultural sights

alone represented around 77% of the tourism funding captured by stakeholders in the direct

management dataset. A different accessibility pattern is visible in third-party or cascade

funding: within the analysed subset of 145 cascade beneficiaries, SMEs accounted for the full

beneficiary base, and participation extended more visibly into underrepresented subsectors

such as accommodation, restaurants and tour operators.

Under shared management, the European Structural and Investment Funds provided the main

large-scale investment route for tourism. The evidence reviewed indicates that almost EUR 10

billion were used for tourism-related activities through ERDF, ESF and Cohesion Funds

combined in the 2014-2020 cycle, which remained the main implementation framework up to

2022.

Strategic recommendations from the study for future funding approaches include making the

existing architecture more strategic, targeted and proportionate to the realities of tourism. Thus,

future funding should be organised more explicitly around jointly agreed tourism policy

objectives, including this Strategy and the Transition Pathway. This allows linking instruments

to concrete medium-term objectives such as resilient destinations, low-carbon tourism models,

digital destination management, skills renewal and climate adaptation in tourism-dependent

territories.

The study also recommends that the funding system should make stronger use of layered

delivery models that connect large flagship projects with downstream uptake mechanisms such

as cascade funding. This would improve the conversion of EU-level experimentation into broad

ecosystem impact. Future approaches should also introduce more targeted corrective measures

for underfunded subsectors and territories, particularly accommodation, food services,

intermediaries and other fragmented segments that face high transition needs but weak funding

uptake. This may require more subsector-sensitive call framing, collective transition vehicles

and territorially anchored support models. Finally, the analysis stresses that SME financing

needs simpler access channels, stronger advisory and intermediation ecosystems, more

proportionate selection logic, and clearer progression routes between first-entry instruments

and more advanced funding opportunities.

Towards the Multiannual Financial Framework (MFF) 2028-2034

The Commission’s proposals for the MFF 2028-2034 provide opportunities to support tourism

through several EU funding instruments. Horizon Europe and the European Competitiveness

Fund could support research, innovation and competitiveness, while AgoraEU could contribute

to culture, cultural and linguistic diversity and heritage, including as an asset for sustainable

tourism, and Erasmus+ to education and training. The tourism-related objective included in the

Commission’s proposal for a Regulation on National and Regional Partnership Plans (NRPPs)

could support initiatives developing sustainable, competitive and balanced tourism, subject to

74

the outcome of the legislative negotiations and Member States' programming choices. Key

transport infrastructure will be funded through the Connecting Europe Facility.

To facilitate access to EU funding opportunities, the Commission's proposal for the next MFF

also foresees a Single Gateway221, providing a single access point to consolidated information

on EU funding opportunities for potential beneficiaries, including tourism businesses and other

tourism stakeholders. This would help improve the visibility and accessibility of funding

opportunities across different EU programmes and instruments, subject to the outcome of the

legislative negotiations.

The new MFF will also equip Europe with faster, more efficient and flexible tools to withstand

shocks and respond to new challenges. It will continue to build Europe’s resilience by financing

the Preparedness Union and prepare for all stages of crisis management: from prevention to

response and recovery. The Commission is proposing a new dedicated crisis mechanism with

a capacity of up to almost EUR 400 billion of loans to Member States, to be triggered when

severe crises hit the Union222. Furthermore, NRPPs will support investments and reforms in all

areas of preparedness and crisis management.

The proposed regulation on the Union Civil Protection Mechanism and Union support for

health emergency preparedness and response (UCPM+) sets out the objectives of the

strengthened mechanism, its budget, and the rules for providing funding between 2028–

2034223. UCPM+ is designed as a key EU-level instrument for integrated crisis management –

from risk assessment, to deploying response capacities. Its general objective, broken down into

six specific objectives, is to strengthen coordination and cooperation with Member States at

EU level and enhance the Union's ability to prevent, prepare for and respond to all kinds of

disasters, serious cross-border health threats, and crises impacting several sectors

simultaneously.

In designing the funding and investment pathways for the present Strategy, the Commission

carefully considered lessons drawn from earlier funding periods. The next MFF is a unique

opportunity to streamline funding and strengthen impact on the ground. In line with the logic

of the new MFF, this Strategy focuses direct EU funding support on carefully selected common

priority investment areas (digital, climate, environment, skills in particular) that should yield

commonly accepted approaches (e.g. skills, promotion), reference criteria (including balanced

tourism guidelines, carrying capacity, tourism management) and tools (e.g. Tourism Data

Space) which in turn represent voluntary reference tools for rollout and scaling up under the

NRPPs. This integrated approach is expected to considerably increase the impact of joint EU-

Member States policymaking in tourism.

Additional investment support and targeted advice will be available under the proposed ECF

InvestEU Instrument and ECF Project Advisory224, building on existing successful InvestEU

funding and advisory capacities, including the InvestEU Portal225, with opportunities to

221 European Commission, Proposal for a Regulation Establishing a Budget Expenditure Tracking and

Performance Framework and Other Horizontal Rules for Union Programmes and Activities, COM°(2025)°545

final, July 2025. 222 European Commission, The EU’s Long-Term Budget 2028-2034, accessed November 2026. 223 European Commission, Proposal for a Regulation on the Union Civil Protection Mechanism and Union

Support for Health Emergency Preparedness and Response, COM°(2025)°548 final, July 2025. 224 European Commission, Proposal for a Regulation Establishing the European Competitiveness Fund,

COM(2025) 555 final, July 2025. 225 European Commission, InvestEU, accessed November 2026.

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facilitate access to finance for SMEs, including through guarantees and financial

intermediaries.

Such improved policy alignment follows the logic of the next MFF, linking research and

experimentation to common tooling and best practice roll out. It will also be supported by

strengthening the tourism dimension in the European Semester process226.

3.2 A sustainable, accessible and resilient ecosystem

The Strategy focuses on strengthening the sustainability, accessibility and resilience of

Europe’s tourism ecosystem. Climate change and environmental degradation, with Europe

warming faster than any other continent, are already reshaping tourism destinations and tourism

flows through more frequent and severe weather events, wildfires, floods, coastal erosion,

declining snow reliability and loss of biodiversity.

These developments are no longer isolated or seasonal. They represent a structural and growing

challenge for tourism destinations and their communities and, given the close link between

environmental and social sustainability, put at risk the medium-to-long-term economic

sustainability of the sector.

Addressing these challenges requires a more integrated approach to destination management

that combines environmental, social, economic and governance considerations. Building on the

consultation process, this pillar therefore sets out a coherent framework of mutually reinforcing

actions to help destinations become more sustainable, accessible and resilient.

3.2.1 EU Model for Tourism Management

A central objective of this Strategy is to support destinations in managing tourism in a more

integrated, sustainable and resilient way. To achieve this, the Strategy introduces an EU Model

for Tourism Management, providing a common European framework that helps destinations

assess progress, share knowledge and apply practical tools while remaining sufficiently flexible

to reflect local circumstances.

While tourism is one of Europe's most important economic and social sectors, the destinations

that sustain it are being asked to do more with less: absorb growing visitor flows, protect fragile

ecosystems and cultural heritage, and modernise their governance and services, all while

operating with fragmented resources and uneven digital maturity. The barriers destinations face

are rarely about ambition, with Destination Management Organisations (DMOs) across Europe

already engaged in sustainability and digital transition efforts, as the examples in this Staff

Working Document show, but about the absence of synergies between national, regional and

local initiatives, and the lack of a shared reference point at EU level to help coordinate, compare

and scale up successful approaches across Europe. Supporting destinations to become smarter

(meaning not only being highly digitalised and AI-savvy, but also sustainable, accessible and

crisis-prepared) requires a coherent European approach that connects existing tools, standards,

and knowledge into a common framework that destinations can readily apply, rather than

relying solely on isolated projects or one-off funding calls.

226 European Commission, Directorate-General for Economic and Financial Affairs, Country pages (including

Country Reports), tourism-related economic analysis, accessed November 2026.

76

The Model is based on the recognition that smart tourism cannot be treated as a sector-specific

add-on but must be embedded in how destinations are planned and governed as a whole. This

means integrating tourism considerations into urban and territorial planning, so that mobility,

housing, environmental management, and visitor economy strategies are designed together

rather than in silos. The Model will provide destinations with common references to assess

progress, exchange good practices, benchmark performance and access targeted support.

The consultation process showed clear and strong support for smart tourism, a more

coordinated European approach to destination management, and EU action to support smart

destinations. Smart tourism was identified as a priority, with stakeholders and Member States

ranking smart destinations and the integration of the Internet of Things among the most

promising innovation trends. In addition, the public consultation showed strong citizen support

for a common EU standard and definition for smart destinations as the highest priority for smart

tourism.

Additionally, a workshop on smart destinations, organised by the 2025 European Capital of

Smart Tourism, Torino (Italy), in December 2025 as part of the consultation process for this

Strategy, concluded that despite genuine progress across several EU-funded initiatives

(Sustainable EU Tourism project, Smart Tourism Destinations, D3HUB, and the European

Capitals of Tourism – former European Capital and European Green Pioneer of Smart

Tourism), European destinations remain held back by fragmented governance, uneven digital

maturity, and siloed data ecosystems that prevent knowledge and best practices from being

shared across borders. To address these challenges, the workshop proposed a common

European methodology and indicators, the integration of smart tourism into broader territorial

and urban planning, a European Tourism Academy to upskill DMOs, businesses and future

professionals, and a European Tourism Data Space serving as common reference for data

governance, funding coordination and benchmarking across destinations, regardless of size or

administrative level. These recommendations directly inform the design of this Model. These

findings are further reinforced by the 2024 report on Supporting sustainability and resilience

of EU tourism destinations, based on a survey of 222 DMOs across all 27 Member States as

part of the Sustainable EU Tourism project227.

Building on successful initiatives and best practices from Member States, the EU Model for

Tourism Management will provide destinations with a flexible framework that integrates

tourism into urban and territorial development while equipping them with practical tools to

support sustainable, balanced and data-driven destination management. It will promote good

governance, interoperability and the strategic involvement of local communities.

Examples – Frameworks for tourism management

Destinos Inteligentes, Spain228 – Spain’s Smart Tourist Destination framework (Destinos

Turísticos Inteligentes, DTI) was set in motion in 2012, when the Ministry of Industry, Energy

and Tourism decided to transform the national tourism model around innovation, technology,

sustainability and accessibility. Its central coordination instrument, the DTI Network, was

launched in 2018, initially including nearly 70 destinations located across Spain’s 17

autonomous regions. The programme is promoted by the Spanish Secretary of State for

227 European Commission, Supporting Sustainability and Resilience of EU Tourism Destinations: Deliverables

1.2 & 1.3, submitted by Intellera Consulting and consortium partners, August 2024. 228 SEGITTUR, Smart Tourism Destinations (Destinos Turísticos Inteligentes), accessed November 2026.

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Tourism (SETUR) and managed by SEGITTUR, the State Society for the Management of

Innovation and Tourism Technologies, and focuses on five key areas of action: governance,

innovation, technology, sustainability and accessibility. Its main features are a shared

diagnostic methodology that produces tailored recommendations, an action plan and a

monitoring system for continuous improvement, paired with a collaborative network that

enables knowledge transfer and synergies between public and private members. It counts 538

members (386 of them destinations, alongside 74 collaborating companies, 72 institutional

members and 6 international observers). More recently, the framework’s maturity is reflected

in continued investment (46 destinations in the DTI Network received 95 million euros in

funding from the Ministry of Industry and Tourism to strengthen their technological

capabilities, with funding lines dependent on the registration to the network) and the 2025

rollout of a national Smart Destination Platform to integrate public and private tourism data.

The model is also being exported to South America, where an Iberoamerican Network of Smart

Destinations has been established.229

Tourism Act, Croatia230 – The Croatian Parliament published the Law on Tourism in

December 2023 with the goal of improving the quality and sustainability of tourism in Croatia.

The main points include the development of tourism strategies, governance of tourism

destinations, promotion of sustainable mobility, and the green transition of tourism companies

and SMEs. It also focuses on innovative tourism services, improving statistics and indicators,

and enhancing the online visibility of the tourism offer.

To implement the Strategy, the Commission plans to launch a preparatory phase in 2027 under

the Single Market Programme to develop a blueprint for the EU Model for Tourism

Management, including the methodology, governance framework, tools, success criteria,

benchmarks and a pilot project. The blueprint should also identify priority use cases for its

application. The aim would be that by 2030, the Model should progressively develop to

integrate existing EU support measures for destinations and provide practical tools to address

common challenges, including (the list of use cases is not exhaustive):

• Balanced management of tourism flows based on the Toolbox for Balanced Tourism;

• Responsible and effective use of AI at destination level;

• Better governance and stronger involvement of public authorities, local SMEs and

communities in decision-making;

• Crisis preparedness and management tools;

• Organisation and portfolio development of major events (sport, culture, business, etc.);

• Promotion of sustainable mobility options and active tourism (cycling, walking); • Improved accessibility of destinations and tourism services;

• More sustainable and efficient water and energy management,

• reducing waste and air, noise, soil and water pollution;

• Stronger visibility for smaller destinations and attractions;

• Monitoring and capturing greater tourism value for local host communities.

229 Red Iberoamericana de Destinos Turísticos Inteligentes, Red Iberoamericana de Destinos Turísticos

Inteligentes (RIDTI), accessed November 2026. 230 Republic of Croatia, Tourism Act (Zakon o turizmu), Official Gazette No. 156/2023, December 2023.

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These tools should reflect the different needs of destinations, from managing excessive visitor

flows in established tourism hotspots to supporting emerging destinations in developing

appropriate governance structures, stakeholder cooperation and sustainable tourism products.

Water management is a concrete example of the potential application of the Model. Due to

climate change, the tourism sector is particularly exposed to the risk of “too little water and too

much water”. The very same regions can experience severe water scarcity and suffer from flash

floods. Water availability becomes less predictable. This is why water retention in touristic

regions and urban areas (“sponge cities”) should become a priority for all tourism hotspots.

Having water available during the peak season will require closer cooperation between the

tourism sector and the water sector. Funding water reuse, for instance, presupposes not only

investments in upgrading water treatment plants, but also investments by the hospitality

industry to use reclaimed water to irrigate their green areas.231.These investments must be

coordinated. Cooling cities with water, too, requires investments in water availability and hence

closer cooperation between municipalities and water managers. Climate change therefore

necessitates a more inclusive form of water governance. Water using sectors and water

producing sectors should work closely hand in hand to promote water retention (nature-based

solutions), water reuse and water efficiency232.

3.2.2 Balanced, accessible and inclusive tourism

Unbalanced tourism can be understood as a structural concept, referring to the disproportionate

distribution of tourism flows - whether spatial, temporal, or demographic - that leads to

inefficiencies, inequalities, and sustainability risks233.

Unbalanced tourism growth within and across destinations and seasons remains a challenge for

many parts of Europe. In recent years, tourism policy has increasingly recognised the need to

move beyond traditional destination marketing towards more integrated approaches to visitor

flow management, participatory governance and cross-border cooperation234.

Seasonality remains pronounced across parts of the EU. In 2025, 31.1% of all nights spent in

tourist accommodation establishments in the EU were concentrated in July and August. The

share reached 54.5% in Croatia, 43.4% in Bulgaria and 41.6% in Greece. Across the EU, the

number of nights spent in August was 3.6 times higher than in January235. The territorial

dimension is also significant: according to the EU Tourism Dashboard, in 70 of 237 EU NUTS

2 regions assessed, more than 70% of overnight visitors were concentrated in just three months

of the year236.

Where tourism development is not guided by strategic and inclusive destination management,

tourism growth may outpace the carrying capacity237 of destinations and insufficiently take into

231 European Commission, Algarve Regional Water Efficiency Plan, accessed November 2026. 232 Water Europe, Attica Water Lab, accessed November 2026. 233 T4T Expert Group, Navigating the Future: Strategies for Sustainable and Balanced Tourism in the EU,

accessed November 2026. 234 OECD, OECD Tourism Trends and Policies 2026, Chapter 2, “Tourism Policies, Priorities and Governance”,

July 2026. 235 Eurostat, Summer peak: 31% of tourism nights in August and July, July 2026. 236 Joint Research Centre (JRC), EU Tourism Dashboard: Tourism Seasonality Indicator, accessed November

2026. 237 European Commission: European Innovation Council and SMEs Executive Agency, Lucerne University of

Applied Sciences and Arts School of Business Institute of Tourism and Mobility, ÖIR, Eberswalde University

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account community needs and environmental sustainability, generating wider negative

impacts. High tourism density areas are often characterised by polarisation among local

communities, with residents perceiving both very positive and very negative impacts of

tourism. An increasing number of Member States are already measuring resident tourism

acceptance238. These structural challenges are compounded by broader pressures, including

housing pressures where short-term rentals may be an aggravating factor in some specific

areas,239 climate adaptation needs, concentration of visitors, labour shortages and external

shocks.

At the same time, many emerging destinations, including those located near tourism hotspots,

in rural areas or in regions undergoing industrial transition, continue to face barriers related to

visibility, expertise, infrastructure and connectivity. In some cases, external factors, including

security concerns linked to geopolitical conflicts, further weaken tourism demand and

investment. This highlights the need not only to mitigate pressures in heavily visited

destinations, but also to strengthen the attractiveness and resilience of destinations with

untapped tourism potential. In this context, stakeholders have called for renewed EU-level

guidance on achieving more balanced tourism flows. However, encouraging tourism

development in lesser-known destinations also requires data-based decisions and

considerations of appropriate connectivity options, local infrastructure and services,

environmental capacity and community needs, to ensure that visitor flows bring value without

creating new pressures.

The consultation process revealed broad stakeholder alignment on the need to tackle

unbalanced tourism and support destinations with guidance and tools to manage tourist flows

adequately, address seasonality challenges, and benefit local residents. The Together for EU

Tourism (T4T) Expert Group also focused on this issue in 2025 and produced a report

“Unbalanced Tourism” 240. This work complements the Commission study of 2022 on

Unbalanced tourism growth at destination level-root causes, impacts, existing solutions and

good practices, whichexamined the drivers and impacts of unbalanced tourism and identified

best practices and innovative approaches to support holistic, and long-term destination

planning241.

Numerous good practices from destinations show that measures are already being taken to

better manage tourist flows, promote year-round touristic activity and involve local residents

in the decision-making process.

for Sustainable Development Centre for Sustainable Tourism, Strasdas, W. et al., Unbalanced Tourism Growth

at Destination Level – Root Causes, Impacts, Existing Solutions and Good Practices – Final Report, section

1.3.2, “Carrying Capacity”, pp. 12–13, Publications Office of the European Union, August 2022. 238 Dessart, F. J., Curtale, R., Batista e Silva, F. (upcoming). Residents’ perception of tourism in the EU:

measurement and determinants. JRC Science for Policy brief, JRC148678. 239 European Commission, Commission Staff Working Document: Understanding the Housing Crisis,

accompanying the European Affordable Housing Plan, SWD°(2025)°1050 final, accompanying

COM°(2025)°1025 final, December 2025. 237 T4T Expert Group, Unbalanced Tourism 2025: Final Report, EU Tourism Platform, February 2026. 241 European Commission: European Innovation Council and SMEs Executive Agency, Lucerne University of

Applied Sciences and Arts School of Business Institute of Tourism and Mobility, Eberswalde University for

Sustainable Development Centre for Sustainable Tourism, ÖIR, Strasdas, W. et al., Unbalanced Tourism Growth

at Destination Level – Root Causes, Impacts, Existing Solutions and Good Practices – Final Report, Appendix 6,

Annotated Compendium, Publications Office of the European Union, August 2022.

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Example cases:

Visitor management – Dubrovnik Pass242 – The 2026 European Green Pioneer of Smart

Tourism, Dubrovnik (Croatia), introduced the Dubrovnik Pass as the city’s key smart visitor

management tool. It is a digital ticket to the city’s attractions, enabling Dubrovnik to regulate

tourism flows while enhancing the visitor experience. In 2025, the system has been upgraded

to include crowd forecasting and a reservation mechanism based on attraction carrying

capacities, further strengthening heritage protection and visitor management. In 2025, a total

of 486,550 visitors used the Pass, generating over 20.7 million euros in revenue. The funds

generated by the Pass are used to finance the cultural sector, including cultural institutions,

stakeholders, public transport, as well as the restoration of cultural heritage sites.

Seasonality – Winter tourism in Cyprus243 – A core part of Agia Napa’s sustainability model

is its focus on reducing tourism seasonality. The city has developed specialised winter tourism

programmes aimed at long-stay travellers. These curated experiences include visits to natural

and cultural sites, local gastronomy tours, and traditional workshops at the Agrotospito. These

initiatives offer authentic encounters while supporting the local economy in the off-season. To

further reduce seasonality and promote sustainable, year-round tourism, Agia Napa has

developed a strong winter sports tourism offer cantered around the Agia Napa Sports Centre.

The Centre hosts major sporting events such as the Agia Napa Youth Soccer Festival and the

Elite Neon Cup, drawing young athletes, families, and coaches to the destination. These events

align with the city’s strategy to diversify its tourism portfolio while encouraging community

participation, healthy lifestyles, and responsible travel beyond the summer season.

Governance – Leipzig, Germany244 – Leipzig’s Tourism Sustainability Strategy (2024-2030) is the result of a collaborative effort, including over 80 stakeholders from the tourism sector.

Based on a SWOT analysis, a stakeholder survey, and an expert workshop, more than 70

concrete measures were developed and structured into eight focus themes. A printed, digital

and barrier free brochure was published as an operational framework for local and regional

actors, with a focus on practical implementation in Leipzig and its surrounding region. Of

particular importance is the network structure built through this process. Strong cooperation

between Leipzig Tourism and Marketing Ltd. and the Leipzig Region Tourism Association

formed the backbone of this strategic collaboration to foster the sharing of best practices,

strengthen collective capacity, and support a coordinated implementation across the city and

the region. As a strategic measure within the sustainability plan, Leipzig hosts regular meetings

that bring together actors from the region to exchange experiences and track process. With

formats such as presentations, advisory services, and participatory workshops, the yearly

partner meeting is designed to adapt to changing political or regulatory contexts while

generating lasting value for all participants.

Community involvement – Sibiu, Romania245 – In Sibiu, sustainable tourism is built on

social involvement of local communities. The city’s residents are actively involved in tourism

and cultural initiatives through participatory programmes. Open calls for community-led

projects allow residents to co-design events in their neighbourhoods and get included in the

city’s decision-making process when it comes to public funding. The residents are involved

242 Dubrovnik Pass, Dubrovnik Pass Official Website, accessed November 2026. 243 European Commission, Leading Examples of Smart and Sustainable Tourism Practices in Europe: Presenting

Best Practices, European Capital of Smart Tourism, accessed November 2026. 244 Leipzig Travel, Sustainable Tourism Development, accessed November 2026. 245 Sibiu City Hall, Official Website, accessed November 2026.

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during major festivals through volunteering opportunities and grassroots initiatives that

strengthen the community and the city’s tourism model. For instance, the ‘Community Dinner’

on Xenopol Street, held in 2024, brought together locals, artists, and tourists into a

collaborative event, highlighting the city’s hospitality and community. Additionally, the

Association of Restaurant Owners from the Turnului Street in Sibiu organise cultural and

gastronomic events, which transform the historic street into a community space for meetings

and discussions, which are among the most visible social consequences associated with the

project.

To support destinations in their efforts to manage tourism in a balanced way, the Strategy

proposes developing a common EU Toolbox for Balanced Tourism. The Toolbox will provide

destinations with a practical set of measures, that can be tailored to their specifics and needs,

helping to strike the equilibrium for the benefit of the host communities, the local business and

visitors, while taking into account the environment. The Toolbox will be designed in

consultation with the Member States and relevant tourism stakeholders. It will help destinations

draw on established expertise, avoid “reinventing the wheel” and move faster. The

implementation of this Toolbox will be supported by the EU Model for Tourism Management,

the EU Tourism Alliance, the EU Tourism Observatory, the EU Tourism Academy, sustainable

connectivity measures and the Destination Europe Framework.

One of the most visible social consequences associated with unbalanced tourism is growing

pressure on housing in certain destinations. Although STRs account only for 1.2% of the EU

housing stock,246 certain neighbourhoods, especially in cities and popular tourist areas, face

acute affordability pressures where limited housing supply - combined with other factors,

including the presence of short-term rentals in some specific areas. Short-term rentals offer

clear benefits, including greater choice for travellers, additional income for hosts, incentives

for renovation, and wider economic gains for tourism and jobs. It also helps creates tourism

capacity where otherwise it would be difficult, such as in remote rural areas. To help balance

these benefits and risks, the Regulation on Short-Term Rentals247, applicable from 20 May

2026, improves transparency through compulsory host registration and data sharing, enabling

public authorities to regulate the market proportionately and address negative impacts more

effectively. Furthermore, the Commission proposal for an Affordable Housing Act248, which

forms part of the implementation of the European Affordable Housing Plan249, aims to help

local authorities and Member States protect housing affordability and availability in areas

facing the greatest pressures. The proposed Regulation builds on existing Union law to provide

clearer, more operational conditions for assessing certain housing-related restrictions, while

preserving national, regional and local housing policy choices. The tourism management tools

envisaged in this Strategy would complement that framework by helping destinations address

wider tourism pressures and their effects on residents and the environment.

246 Batista e Silva, F., Curtale, R., Ribeiro Barranco, R., Marconi, M. and Tucci, M., Place-based determinants

of housing prices in Europe (2025), accessed November 2026. 247 European Parliament and Council of the European Union, Regulation (EU) 2024/1028 on Data Collection

and Sharing Relating to Short-Term Accommodation Rental Services, Official Journal of the European Union,

April 2024. 248 European Commission, Affordable Housing Act, accessed November 2026. 249 European Commission, Communication from the Commission to the European Parliament, the Council, the

European Economic and Social Committee and the Committee of the Regions: The European Affordable

Housing Plan, COM°(2025)°1025 final, accompanying SWD°(2025)°1053 final, December 2025.

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Cruise tourism and maritime transport

Balanced tourism also requires better management of transport-intensive forms of tourism,

particularly cruise tourism, where close cooperation between destinations, ports and cruise

operators is essential to manage visitor flows, reduce negative environmental impacts and

maximise (economic) benefits for host communities.

The Toolbox on balanced tourism will provide best practices and recommendations in this area,

building on the Good Practices for Sustainable Cruise Tourism250 and on existing cooperation

mechanisms in place between destinations, port authorities and cruise lines to better manage

tourism flows. The Commission’s assessment of the sustainability of cruise tourism revealed

that sustainability gains can mainly be achieved by improving cooperation between

stakeholders251, addressing issues such as the effective management of tourism flows

(overtourism), emissions at ports (air quality, noise and climate), connectivity of peripheral

coastal communities and islands, economic and social inclusion of destinations, and

environmental sustainability (waste, water).

Example: Equipping ships to connect to shoreside electricity – Cruise Lines

International Association (CLIA)252

All CLIA member ocean cruise lines have made a commitment that all ships calling at ports

capable of providing shoreside power are anticipated to be equipped to either use shoreside

electricity by 2035 or to be able to use alternative low carbon technologies, as available, to

reduce emissions in port.

As part of the EU’s Fit for 55 legislative package, qualifying TEN-T maritime ports must

provide shoreside electricity by the end of 2029, in accordance with Regulation (EU)

2023/1804253, which will further drive investment in port infrastructure. At the same time, the

sustainability of the waterborne tourism sector requires closer cooperation between

destinations, ports and the cruise industry, supported by appropriate infrastructure investments.

This aligns with the aims of the Islands and Coastal Communities strategies, the EU Ports

Strategy, the EU Industrial Maritime Strategy, and the European Ocean Pact254. To mitigate

localised pressures on major port cities, structured dialogue between port authorities, municipal

authorities and cruise lines should promote itinerary diversification and seasonal dispersal,

directing visitor flows towards secondary coastal destinations and regional maritime areas,

where appropriate and taking account of local infrastructure and environmental capacity.

250 European Commission, Directorate-General for Maritime Affairs and Fisheries, Good Practices for

Sustainable Cruise Tourism, accessed November 2026. 251 European Commission: Directorate-General for Maritime Affairs and Fisheries, Deloitte Consulting B.V. and

Ramboll Management Consulting, Good Practices for Sustainable Cruise Tourism – Final Report, Publications

Office of the European Union, February 2023. 252 Cruise Lines International Association (CLIA) Europe, Shore-Side Electricity Capability, accessed

November 2026. 253 Regulation (EU) 2023/1804 on the Deployment of Alternative Fuels Infrastructure, Official Journal of the

European Union, September 2023. 254 European Commission, Directorate-General for Mobility and Transport, EU Ports and Industrial Maritime

Strategies, accessed November 2026; European Commission, Commission Presents First-Ever EU Strategies for

Islands and Coastal Communities, press release, June 2026; European Commission, Directorate-General for

Maritime Affairs and Fisheries, European Ocean Pact, accessed October 2026.

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Beyond cruise tourism, decarbonising and modernising passenger ferry networks is equally

important for island and coastal regions, helping ensure reliable, low-emission connectivity

while supporting year-round tourism and strengthening territorial cohesion.

Example: Cross-border intermodal cooperation in the Adriatic (CROSSCONNECT)255

Passenger connectivity in the Adriatic is constrained by the limited integration of port, airport

and urban transport systems, which lengthens transfer times and concentrates pressure on

access infrastructure during the summer peak. The CROSSCONNECT project (Cross-border

Coordinated Sea-Land Approach Interconnecting Ports of the Adriatic Sea with Airports and

Urban Areas), funded under the Interreg Italy-Croatia Programme 2021-2027, addressed this

gap by testing coordinated, ICT-based intermodal solutions across four metropolitan areas:

Venice, Pula, Dubrovnik and Bari-Brindisi.

The project ran from March 2024 to April 2026, with a budget of EUR 2.09 million and eight

port, airport and urban-transport partners. It applied two connection models. In Venice and

Dubrovnik, a port-airport model integrated passenger information and baggage handling

between cruise terminals and airports; the Dubrovnik pilot added electric baggage transfer and

accessibility services for passengers with reduced mobility. In Pula and Brindisi, a port-urban

model introduced electric port-to-city bus links and smart ticketing in Pula, and real-time

passenger information across port, airport and city nodes in Brindisi. On the partners' own

assessment, the pilots reduced passenger processing times, lowered transport emissions and

improved first and last-mile access.

The tested solutions were consolidated into a Strategic Roadmap for transferable intermodal

connections, presented at the Adriatic Sea Forum in June 2026. CROSSCONNECT illustrates

the coordinated, cross-border integration of transport modes that the Strategy addresses,

supported by shared data standards and low-emission infrastructure and designed for

replication at other nodes.

Authenticity, cultural heritage and local identity

Promoting balanced and community-centred tourism also means strengthening the distinctive

cultural and natural assets that make destinations attractive beyond Europe's traditional tourism

hotspots. The enduring appeal of European tourism lies in the authenticity and richness of its

culture, experiences and living traditions. Rural tourism and gastronomy connect visitors with

local food traditions, landscapes and producers, creating economic opportunities while

preserving cultural heritage and rural livelihoods. Geographical Indications (GIs) link products

to their geographical origin and can help preserve cultural and gastronomic heritage, promote

rural tourism and strengthen local identity and economies256. Authenticity also extends to

Europe’s artisanal traditions, where craftsmanship passed down through generations supports

local employment, preserves cultural identity and enriches the visitor experience. Preserving

this authenticity also requires involving local communities in tourism development and

ensuring that cultural traditions are not reduced to commercial attractions.

Europe’s built heritage, historic towns and villages, industrial heritage and network of heritage

railways provide high-value tourism experiences that diversify tourism offers, spread economic

benefits to rural and peripheral regions and help safeguard cultural assets for future generations.

255 Dubrovnik Airport, CROSSCONNECT: Cross-border Coordinated Sea-Land Approach Interconnecting

Ports of the Adriatic Sea with Airports and Urban Areas, accessed November 2026. 256 European Commission, Geographical Indications and Quality Schemes, accessed November 2026.

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Europe’s linguistic diversity is another defining feature of its tourism offer. Languages are an

essential part of local identity and cultural heritage, enriching visitor experiences, strengthening

cultural understanding and supporting authentic exchanges between visitors and host

communities.

Numerous examples of successful initiatives illustrate the importance of maintaining and

further exploring authentic tourism offers. The forthcoming EU AI Strategy for the Cultural

and Creative Sectors could also offer opportunities to strengthen links between culture and

tourism, particularly through digital skills, access to digitised cultural heritage and the

responsible use of AI-generated content, while safeguarding cultural authenticity257.

Examples:

Mountain trails and huts - Europe's network of mountain trails and huts illustrates how

tourism can combine cultural heritage, active mobility, public health, nature conservation and

rural development. Maintained largely through the work of mountaineering associations and

volunteers, these networks connect landscapes, communities and destinations across borders,

while enabling low-impact tourism and helping distribute visitor flows beyond traditional

hotspots. They also play an important role in preserving mountain heritage, supporting local

economies and strengthening the resilience of mountain destinations in the face of climate

change. The Joint Charter on European Hiking and Mountain Trails, developed by the

European Mountaineering Association (EUMA) and the European Hiking Federation (ERA),

recognises trails as public goods and highlights their contribution to accessibility, sustainable

tourism, public health, territorial cohesion and cultural exchange258.

Beer tourism, Belgium - Beer tourism illustrates how a place-based product can knit together

an entire destination around authenticity rather than isolated attractions. In Bruges, Belgium,

the last active historic brewery, De Halve Maan, keeps industrial heritage genuinely alive in

the city centre, pairing brewery visits with its underground beer pipeline to sustain an

interactive year-round attraction. Beyond the capital, the Toer de Geuze259 initiative draws

roughly 30,000 visitors, over 40% from abroad, into the rural Pajottenland and Zenne Valley

every two years, when fourteen traditional lambic breweries and gueuze blenders open their

doors and generate overnight stays, cycling trips and public-transport journeys that spread

tourism revenue into small family breweries and village hospitality. In West Flanders, the

historic Hop Region links breweries, hop museums, agricultural tourism and cycling routes so

that visitors encounter the crop, the craft and the community together. In the Ardennes, the

Trappist Trail260 connects three internationally renowned abbey breweries through multi-day

walking and cycling itineraries that anchor rural destination development in village

accommodation and regional producers. These examples show that beer tourism makes visible

existing heritage (brewing traditions recognised by UNESCO, monastery routes, hop-growing

landscapes), rooted in craftsmanship, agriculture and community rather than a manufactured

attraction.

257 European Commission, Culture Compass for Europe, Commission Communication, section 5.1 and Annex

(Flagship Action 10: AI Strategy for the Cultural and Creative Sectors, Q1 2027), November 2025. 258 European Mountaineers, Official Website, accessed November 2026. 259 Toer de Geuze, Official Website, accessed November 2026. 260 European Federal Public Service Foreign Affairs, Foreign Trade and Development Cooperation, The

Trappist Trail: Hiking and Tasting, Focus on Belgium, October 2017.

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Trail of Women, Kraków, Poland - Kraków’s inclusive approach to cultural heritage

embraces social awareness and the recognition of historically underrepresented groups. A

notable example is the city’s initiative to highlight the role of women in shaping Kraków’s

identity through the creation of the ‘Trail of Women of Kraków’261. This thematic tourist route

spans several key districts of the city, including the Old Town, Kazimierz, Podgórze, and Nowa

Huta, guiding visitors through sites associated with influential women who have contributed to

Kraków’s cultural, scientific, political, and social life. The trail not only brings attention to

lesser-known historical narratives but also encourages reflection on the impact of women in

both past and present-day Kraków. To promote the initiative and engage the public, the city

organises a dedicated series of events each March, known as Women of Kraków Month. This

programme includes guided walks, educational workshops, lectures, and community activities

designed to deepen the understanding of women's roles in the city's history and to inspire

dialogue about equality and representation.

Pilgrimage routes and trains, Italy - Trenitalia, a member of the Italian Ferrovie dello Stato

Group, launched a partnership with the European Association of the Via Francigena Ways,

Regionale and Trenitalia Tper offering discounts for travellers walking, cycling, or riding the

historic pilgrimage route Via Francigena, with fare reductions and loyalty points for individual

travellers and a 20% discount for groups of at least ten people, while pilgrims can have their

credential stamped at Trenitalia ticket offices, linking the rail journey directly to a certified

cultural-heritage itinerary. In parallel, Trenitalia's Intercity division has curated a network of

cycling itineraries,262 such as the roughly 1,300-kilometer Adriatic cycle route from Trieste to

Santa Maria di Leuca crossing seven regions, and routes through the Ligurian Riviera dei Fiori,

the Salento coast, Lazio, Friuli-Venezia Giulia, Calabria, and Sicily, each explicitly designed

to begin and end at rail stations and to connect with train-plus-bicycle travel solutions,

effectively turning intercity trains into the backbone of a national slow-tourism network.

Together, these partnerships show that high-speed and regional rail generate their fullest value

not simply by moving passengers quickly, but by functioning as the connective infrastructure

of an integrated tourism ecosystem, binding together heritage associations, regional transport

operators, protected-area authorities, and local hospitality networks into a single, bookable

customer journey.

Les Routes du Comté, France - Les Routes du Comté is a tourism network built around Comté

cheese, a product protected by a Geographical Indication (GI). It brings together farms, cheese

dairies and ageing cellars, alongside outdoor activities that allow visitors to discover the

region's landscapes and agricultural traditions. The network also includes local shops,

restaurants and other opportunities to discover regional products. By connecting food

production, cultural heritage and tourism, the initiative helps diversify the rural tourism offer

and creates opportunities for local producers and businesses263.

Accessibility

Sustainable tourism can only achieve its full impact when it is inclusive and accessible. In this

context, accessibility refers to ensuring that tourism destinations, services and experiences can

be accessed and enjoyed by everyone, regardless of age, disability or other access requirements.

It encompasses the entire tourism journey, including transport, accommodation, attractions,

261 City of Kraków, “Krakowianki”, Kraków dla Równości, January 2025. 262 Trenitalia, “Ciclovie italiane: viaggia con Intercity e scopri i percorsi in bicicletta”, Intercity – Consigli di

viaggio, accessed November 2026. 263 Jura Tourisme, “Les Routes du Comté”, accessed November 2026.

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information and digital services, and aims to enable all visitors to travel independently, safely

and with dignity. This approach is consistent with the European Accessibility Act264 and the

UN Convention on the Rights of Persons with Disabilities265.

The potential beneficiaries of improved tourism accessibility represent a substantial share of

the European population. In 2024, 23.9% of people aged 16 years or over in the EU reported

some or severe long-standing limitation in their usual activities due to health problems.

Accessibility needs are also expected to become increasingly important as the EU population

ages, with nearly one in three EU residents projected to be aged 65 or over by 2050.266

Barrier-free accessibility needs to be addressed both at destination level and throughout the

travel journey, including through seamless assistance and step-free intermodal travel chains

from origin to destination, to guarantee equal access to tourism for persons with disabilities

and persons with reduced mobility. At the same time, applying Design for All principles across

destinations benefits a much wider range of visitors, including older travellers and families

with young children, while helping destinations tap into the growing opportunities of the silver

economy, supporting year-round tourism and contributing to reduced seasonality267.

Examples:

Tampere, Finland - The 2026 European Capital of Smart Tourism, Tampere (Finland), is

investing in accessible nature tourism, reflecting the importance of lakes and nature tourism to

residents and visitors268. The city ensures that nature attractions are easily reachable by public

transport and accessible to everyone.In 2024, Tampere opened its first accessible beach at Lake

Pyhäjärvi, featuring a gentle ramp into the lake, handrails, accessible changing facilities and

information in Braille. Further initiatives include barrier-free routes, such as in the Kintulammi

camping area, accessible route information on the outdoorstampere.fi website, and Outdoor

Express269, a shuttle bus service connecting Tampere with nearby national parks. Together,

these measures illustrate how accessibility can be integrated across infrastructure, information

and transport to broaden access to nature-based tourism.

Szczecin, Poland - The city of Szczecin, in Poland, pays particular attention to its senior

residents and visitors, with several initiatives focusing on this social group.270 The Szczecin

Senior Card allows seniors to access cultural institutions and rehabilitation or wellness

treatment services at lower costs or free of charge. The dedicated Senior Centre serves as a

community integration space, providing information about senior-related activities in the city

and promoting engagement among the senior community. The city has also established a

Municipal Senior Council, which helps to shape activities for seniors based on the needs of

senior residents. Organisations that support seniors can be found on the Senior Map of

Szczecin. Together, these initiatives illustrate how destinations can adapt services and

264 European Parliament and Council of the European Union, Directive (EU) 2019/882 on the Accessibility

Requirements for Products and Services, Official Journal of the European Union, June 2019 265 United Nations Department of Economic and Social Affairs (UN DESA), “Convention on the Rights of

Persons with Disabilities (CRPD)”, Division for Inclusive Social Development, accessed November 2026. 266 Eurostat, “Population with Disability”, Statistics Explained, May 2026; Eurostat, “Population Projections in

the EU”, Statistics Explained, accessed November 2026. 267 Simonas Gaušas et al., Research for TRAN Committee: Role of the Longevity Economy in the Tourism

Sector, European Parliament, Policy Department for Transport, Employment and Social Affairs, January 2025. 268 Ekokumppanit, “Accessible Destinations”, Outdoor Tampere, accessed November 2026. 269 EcoFellows Ltd, “Outdoor Express – Your Ticket to Nature”, Outdoor Express, accessed November 2026. 270 City of Szczecin, “Seniorzy”, Szczecin – Official City Website, accessed November 2026.

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experiences to an ageing population while promoting social participation and supporting the

silver economy.

Romagna Faetina, Italy - With the support and knowledge received under the Interreg Europe

project “SILVER UP”271, is developing accessible, age-friendly tourism services with a focus on

cultural heritage, gastronomy, nature and wellness, including with available ERDF resources

as part of the sustainable urban development strategy. To better ensure a more targeted and

effective support, the municipality is involving older residents, local organisations and tourism

operators in the design of cultural tourism, wellness packages, and the promotion of the

destination. Through this approach, not only can Romagna Faetina extend the tourism season

and strengthen the local economy, but it can better coordinate tourism, mobility, and social

services.

For more ERDF project examples, see the Kohesio Database272.

3.2.3 Environmental transition and regenerative tourism

Alongside balanced visitor management, achieving a sustainable tourism ecosystem requires

significant efforts in reducing the environmental footprint and going a step further by restoring

the natural ecosystems and communities. Accelerating the green transition of European tourism

requires integrating transport and other tourism industry decarbonisation, climate adaptation

and ecosystem protection into destination management.

The environmental footprint of tourism is multi-dimensional, ranging from CO2 emissions to

resource and energy consumption, pollution, water extraction, land use and overall impact on

biodiversity, including on protected areas within the Natura 2000 network. The latest estimates

available from the 2024 report of the European Monitor of Industrial Ecosystems273 indicate

that CO2 and particulate matter emissions from the tourism ecosystem have remained stable

over time: in 2021 the tourism ecosystem accounted for around 10% of CO2 emissions, while

emissions from consumption travel have risen as part of a broader post-pandemic recovery.

Material extractions have been growing annually by an average of 5.5% from 2016 to 2022.

Waste production remains a key concern, with beach waste in particular increasing over the

years (median value for plastic items found per 100m on European beaches was 481 in 2022,

compared to 121 in 2013). Land use measured in square kilometres is increasing, aligning with

statistics showing a rise in European hotel construction projects, which saw a significant surge

in 2024.

Tourism and recreational activities may also exert pressures on biodiversity. Based on the six-

year reporting period under Article 17 of the Habitats Directives, tourism-related pressures

account for 13% of all reported pressures on habitats and species274. Evidence from protected

areas further shows that tourism and recreational activities can contribute to habitat degradation

and species disturbance, displacement and changes in species composition, with sensitive

271 Interreg Europe, Silver Tourism: a new opportunity for Romagna Faentina, accessed November 2026. 272 European Commission, Kohesio: EU Cohesion Policy Projects, accessed November 2026. 273 European Commission, European Innovation Council and SMEs Executive Agency, Technopolis Group,

Izsak, K., Markianidou, P., Marinelli, E. et al., ‘Monitoring Industrial Ecosystems – Tourism – Analytical

Report – 2024 Edition’, Publications Office of the European Union, May 2025. 274 European Environment Agency, “Habitats and Species: Main Pressures and Threats”, State of Nature in

Europe: A Health Check, accessed November 2026.

88

plants, birds and mammals declining or disappearing from disturbed sites275. The result of the

State of Nature reporting cycles, carried out pursuant to Article 12 and Article 17 of the Birds

and Habitats Directives (BHD), highlighted the pressures affecting habitats and species

protected within the Natura 2000 network. Among these pressures, poorly managed tourism

visitor flows can contribute to habitat degradation, disturbance of species, pollution and the

depletion of natural resources. This underlines the need for effective visitor management and

sustainable tourism approaches that help prevent or minimise pressures on sensitive natural

areas while supporting the conservation objectives of Natura 2000 sites.

The Commission's new guidance on Natura 2000 and sustainable tourism276 provides a

practical framework for addressing these challenges. The guidance emphasises the need to

integrate tourism planning and visitor management into the overall management of Natura

2000 sites. It recognises that tourism can generate significant socio-economic benefits for local

communities and regions, while also underlining that these benefits depend on maintaining the

ecological assets on which nature-based tourism relies. It therefore calls for a more proactive

and integrated approach to managing tourism pressures, based on understanding the specific

vulnerabilities and carrying capacity of individual sites, monitoring visitor pressures and

impacts, and engaging relevant stakeholders in the design and implementation of appropriate

management measures. These may include measures to better distribute visitor flows in space

and time, improve visitor information and awareness, and manage access and activities where

necessary. The overall objective is to ensure that tourism development remains compatible with

the conservation objectives of Natura 2000, while enabling destinations and local communities

to benefit from the economic and social opportunities that sustainable tourism can provide.

Tourism businesses are investing in climate-positive measures. According to the same

European Monitor of Industrial Ecosystems report, in 2024, 21% of companies in the tourism

industrial ecosystem have adopted strategies for climate neutrality - over 70% reduced waste

and saved energy, while more than 60% were saving water and materials. Despite the high

share of companies taking action for the environment, there is an overall low level of

investment into environmental technologies: 26% of tourism companies have opted not to

invest in environmental technologies, and of the companies that do invest, nearly half (49%)

allocate less than 5% of their annual revenue toward such initiatives.

In line with the Clean Industrial Deal and the Sustainable Transport Investment Plan (STIP),

supporting the uptake of sustainable fuels across aviation and maritime transport alongside the

rollout of electric vehicle charging infrastructure is essential to reduce the footprint of travel to

and within destinations. Equally, local and regional authorities as well as companies and

organisations active in the sector should implement sustainable urban mobility plans (in case

of authorities) and management plans (in case of companies and organisations) and actions that

promote low- and zero-emission means of mobility such as public transport, active mobility

and shared mobility, in line with the EU Urban Mobility Framework277. EU institutions

272 Tolvanen, A. and Kangas, K., “Tourism, Biodiversity and Protected Areas – Review from Northern

Fennoscandia”, Journal of Environmental Management, Vol. 169, 2016, pp. 58–66, accessed November 2026. 273 European Commission, Directorate-General for Environment, “Staff Working Document on Natura 2000 and

Sustainable Tourism”, Publications Office of the European Union, July 2026. 277 European Commission, The New EU Urban Mobility Framework, Communication from the Commission to

the European Parliament, the Council, the European Economic and Social Committee and the Committee of the

Regions, COM°(2021)°811 final, December 2021.

89

committed, in the European Declaration on Cycling278, to creating favourable conditions to

support cycling as a sustainable means of recreation and tourism. These efforts need to be

complemented by measures that strengthen the resilience of destinations to climate change and

support the restoration of natural ecosystems.

In this context, the Strategy builds on several EU initiatives. The European Ocean Pact (June

2025) is a comprehensive strategy to better protect the ocean, promote a thriving blue economy,

including coastal and maritime tourism, and support the well-being of people living in coastal

communities and areas. The Islands Strategy and the Coastal Communities Strategy (June

2026) work in tandem, reinforcing each other to address shared pressures while responding to

the unique realities of islands and coastal communities alike.

Environmental transition and climate action

Climate change is already reshaping tourism patterns across Europe. JRC modelling indicates

that these effects will become increasingly uneven as warming intensifies. Under higher

warming scenarios, tourism demand in some regions of Cyprus, Greece, Spain, Italy and

Portugal could decrease by more than 5%, while some northern European regions could

experience increases of more than 5%. Southern coastal regions could lose nearly 10% of

summer tourism demand under 3°C and 4°C warming scenarios, while demand is projected to

increase during other parts of the year, illustrating a potential redistribution of tourism between

both regions and seasons279. The underlying modelling also projects April demand increasing

by up to 8.89% and July demand falling by up to 5.72% at EU level under the 4°C scenario.

Rising temperatures, changing snow conditions, water scarcity, coastal erosion, floods and

wildfires are affecting destinations, tourism businesses and transport networks, with growing

implications for the viability and competitiveness of tourism destinations, shifting seasonality

and tourism flows. European tourism therefore needs to further reduce its environmental

footprint while strengthening the resilience of destinations to climate change.

Climate change has been a priority for the tourism ecosystem since the Tourism Transition

Pathway, which mobilised public and private stakeholders around the green transition and

resilience, and was subsequently reflected in the European Agenda for Tourism 2030. The 2025

stocktaking of the Agenda found that, while important progress had been made on the green

transition, the uptake of circular economy and resource-efficient practices needed to accelerate. Progress in supporting the green transition of tourism SMEs was assessed as moderate, with

nearly half of Member States reporting relevant support measures, while further progress was

identified as necessary in the uptake of tools such as the Product Environmental Footprint, EU

Ecolabel and EMAS. It also identified climate adaptation as an area requiring further progress,

with tourism policies and infrastructure not yet fully aligned with climate resilience

objectives280.

278 European Parliament, Council of the European Union and European Commission, European Declaration on

Cycling, OJ C, C/2024/2377, April 2024. 279 European Commission, Joint Research Centre, Regional impact of climate change on European tourism

demand, accessed November 2026. 280 European Commission, Report from the Commission to the Council on the implementation of the European

Tourism Agenda 2030, COM°(2025)°763 final, December 2025.

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A cornerstone of this work is the new EU Framework for Climate Resilience281, which will

make Europe significantly better prepared for and more resilient to climate impacts. It sets the

basis for systematic and anticipatory climate risk management across the EU by introducing

the reference global warming trajectory, clarifying risk ownership, incorporating climate

resilience in planning and decision making, improving risk assessments and strategic plans,

strengthening investment, and providing enabling tools. It will empower all stakeholders to

manage climate risks more effectively, leveraging the insights and experiences developed

under the EU Mission on Adaptation to Climate Change282 and existing knowledge and

forecasting tools, including the Copernicus Climate Change Service283 and Climate-

ADAPT284. As part of this framework, the Commission will support Member States,

destinations and tourism businesses by providing climate knowledge, science-based risk

assessments and long-term forecasts to strengthen preparedness, adaptation and long-term

destination planning.

Existing EU tools already support tourism businesses in measuring, managing and

communicating their environmental performance. The EU Taxonomy provides a science-based

classification system for environmentally sustainable economic activities. Under the

environmental objective of protection and restoration of biodiversity and ecosystems, it

includes specific technical screening criteria for substantial contribution and do no significant

harm (DNSH) for hotels, holiday accommodation, camping grounds and similar

accommodation285. The Sustainable Finance Taxonomy286 sets out technical screening criteria

for application to hotels, holiday, camping grounds and similar accommodation to establish if

these activities provide a substantial contribution to protection and restoration of biodiversity

and ecosystems. This includes requirements for contractual agreements to contribute to

conservation or restoration measures, implementation of action plans for contributing to nature

conservation, establishment of sustainable supply chain and environmental management

systems, and requirements for environmental impact assessments and audits.

In order to potentially qualify for preferential financing and access to green bonds, economic

operators in the sector must also meet the “do no significant harm” criteria in relation to climate

change mitigation and adaptation, sustainable use and protection of water and marine resources

transition to a circular economy and pollution prevention and control.

The EU Ecolabel provides a voluntary EU-wide certification scheme for tourist

accommodation meeting defined environmental criteria, including on energy and water use,

waste reduction and environmental management287. The Eco-Management and Audit Scheme

(EMAS) provides organisations with a framework to assess, manage and continuously improve

281 European Commission, Report from the Commission to the Council on the implementation of the European

Tourism Agenda 2030, COM°(2025)°763 final, December 2025. 282 European Commission, ‘EU Mission: Adaptation to Climate Change’, Directorate-General for Research and

Innovation, accessed November 2026. 283 Copernicus, ‘Climate Change Service’, accessed November 2026. 284 European Environment Agency (EEA) and European Commission, ‘Climate-ADAPT: European Climate

Adaptation Platform’, accessed November 2026. 285 European Commission, Commission Delegated Regulation (EU) 2023/2486 of 27 June 2023, Annex IV,

Section 2.1, ‘Hotels, holiday, camping grounds and similar accommodation’, OJ L, 2023/2486, June 2023. 286 European Commission, Commission Delegated Regulation (EU) 2023/2486 of 27 June 2023, supplementing

Regulation (EU) 2020/852 by establishing technical screening criteria for environmentally sustainable economic

activities, OJ L, 2023/2486, June 2023. 287 European Commission, EU Ecolabel, accessed November 2026.

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their environmental performance, supported by verified environmental reporting288. The

Product Environmental Footprint methodology complements these tools by providing a

common approach to assessing the environmental footprint of products and organisations

across their life cycle, with specific Product Environmental Footprint Category Rules (PEFCR)

under development for hotel accommodation289. By December 2026, the pilot project

developing PEFCR for hotel accommodations will provide a common, credible method to

measure environmental footprint, identify and address the hotspots.

The Commission Recommendation on Water Efficiency First290 and related actions under the

European Water Resilience Strategy291 support the tourism sector to contribute to the European

Union’s objective to increase water efficiency by 10% until 2030.

Public authorities can draw on the TAIEX EIR peer 2 peer tool, which facilitates exchanges of

expertise and good practices between national, regional and local authorities on the

implementation of EU environmental policy and legislation, including in areas relevant to

sustainable tourism such as circular economy, waste and water management, biodiversity and

green infrastructure292.

Reducing the environmental footprint of tourism also requires accelerating the decarbonisation

of transport, promoting active and shared mobility, improving energy efficiency and supporting

low-emission tourism infrastructure. The integration of non-motorised transport routes, such

as greenways and cycling routes, into the broader transport network, not only promotes the

decarbonisation of transport and supports sustainable tourism by providing alternatives to

overcrowded destinations and extending the tourism season but also contributes to the well-

being of local communities.293 Greenways also support territorial cohesion by improving

connectivity between urban and rural areas, encouraging active mobility and creating new

opportunities for nature-based and cultural tourism.

While climate adaptation requires long-term integration of climate risks into destination

planning and investment, preparedness for and response to climate-related disruptions is

addressed further in section 3.2.4 on tourism crisis preparedness and resilience.

Climate adaptation measures will be particularly relevant for coastal, island, mountain and

nature-based destinations whose tourism offer is highly climate-dependent, as well as for

tourism SMEs with more limited financial capacity to absorb or adapt to climate-related

shocks294. For mountain destinations, declining snow reliability poses particular challenges for

winter tourism. A study covering 2,234 ski resorts in 28 European countries found that, without

artificial snowmaking, 53% would face very high snow-supply risk at 2°C of global warming.

While artificial snowmaking can mitigate some of these risks, it also increases water and energy

288 European Commission, ‘Eco-Management and Audit Scheme (EMAS)’, accessed November 2026. 289 PEF Hotel Accommodation, ‘The Product Environmental Footprint Category Rules (PEFCR) for Hotel

Accommodation Services’, accessed November 2026. 290 European Commission, Commission Recommendation (EU) 2025/1179 of 4 June 2025 on guiding principles

of water efficiency first, June 2025. 291 European Commission, ‘Water Resilience Strategy’, accessed November 2026. 292 European Commission, ‘TAIEX-EIR PEER 2 PEER Tool’, accessed November 2026. 293 European Greenways Association (EGWA), European Greenways Association, accessed November 2026. 294 OECD, OECD Tourism Trends and Policies 2026, Chapter 4, ‘Adapting tourism to extreme weather-related

events’, OECD Publishing, Paris, March 2026.

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demand, highlighting the importance of climate adaptation measures that take account of local

environmental constraints and the long-term viability of tourism activities295.

Examples

Lithuania: energy and transport decarbonisation - Tauragė, in Lithuania, is a national

frontrunner in the sector of energy. 99% of the district’s heating is generated from biomass,

and 25 public institutions operate photovoltaic solar panels. In 2019, the city used an ESCO

model to replace 3,500 streetlights with smart LED systems, saving around 50% in electricity

consumption. Public institutions are gradually switching to heat pumps, and the city provides

financial incentives to residents who replace outdated heating systems with sustainable

alternatives. Tauragė is home to Lithuania’s most advanced electric public transport system.

All buses are fully electric and an annual pass costs only €12, making climate-friendly travel

accessible to all social groups of residents and visitors296.

Austria: Ecolabel for tourism destinations297 - In 2022, Austria created a new national

ecolabel on tourism destination level, in addition to the existing ecolabels for businesses. It was

implemented to accelerate the green transition, improve regional value chains and respond to

the increasing demand for sustainable holidays.

A key requirement is the cooperation by destination management organisation with political

actors and local tourism enterprises as well as sufficient financial, personnel and time resources

for implementation. The ecolabel criteria were developed in a comprehensive discussion

process with relevant stakeholders and experts from the tourism sector, including 19 pilot

destinations, and are based on the European Tourism Indicator System and the internationally

recognised criteria of the Global Sustainable Tourism Council. They further comply with EN

ISO 14024. The label comprises a comprehensive set of 63 mandatory and 56 optional criteria,

the latter based on a scoring system with a minimum number of points to be achieved at the

time the application is submitted.

As of October 2026, 21 destinations in Austria have already been awarded with the Ecolabel

for Tourism Destinations.

Greece: climate adaptation and nature-based solutions - The Gouras Stream Management

project298 in Igoumenitsa, Greece, focuses on the protection and restoration of local waterways.

By implementing flood control measures, riverbank reinforcement and ecological restoration,

the project safeguards water quality, reduces erosion, and protects habitats of native flora and

fauna. This intervention also enhances the surrounding landscape, providing safe and

accessible spaces for recreation and eco-tourism.

Ireland: active mobility and circularity - The Great Western Greenway Cycling & Walking

Trail, developed by Mayo County Council, Ireland, is a 48.5-kilometre coastal walking and

cycling trail along the Wild Atlantic Way, which is built on a disused railway line and

295 François, H., Samacoïts, R., Bird, D.N. et al., ‘Climate change exacerbates snow-water-energy challenges for

European ski tourism’, Nature Climate Change, 13, 935–942, September 2023. 296 European Commission, Directorate-General for Mobility and Transport, Leading Examples of Smart and

Sustainable Tourism Practices in Europe, accessed November 2026. 297 The Austrian Ecolabel, ‘Tourism Destinations’, accessed November 2026. 298 Municipality of Igoumenitsa, ‘Έργα διευθέτησης ρέματος Γκούρας’ [Gouras Stream Regulation Works],

press release, August 2023.

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exemplifies sustainable infrastructure by repurposing existing corridors with minimal

environmental impact. The trail includes Ireland’s widest boardwalk, constructed over

undisturbed bogland, preserving sensitive habitats and supporting biodiversity. Environmental

innovation is central to the initiative, with features such as solar-powered compactor bins, e-

bike charging stations, and public furniture made from repurposed wind turbine blades,

demonstrating circular economy principles in practice299.

Regenerative tourism

Beyond mitigation of tourism impacts on the environment, regenerative tourism goes a step

further and complements sustainability goals. It uses policy, technical tools and business

decisions not only to minimise negative impacts, but to actively restore ecosystems, strengthen

local communities and create long-term economic value, ensuring that tourism contributes

positively to environmental health, social well-being and territorial resilience.

This approach was explored by the T4T Expert Group through a dedicated webinar on

sustainable destination management and regenerative tourism. Discussions highlighted the

potential for tourism to contribute not only to ecosystem and biodiversity restoration, but also

to community revitalisation and the preservation of cultural heritage. They also emphasised the

importance of long-term planning, community participation and cooperation between tourism

businesses, public authorities, local communities and visitors in moving from reducing

negative impacts towards creating positive value for destinations300. Furthermore, the T4T

Expert Group provided the Commission with recommendations to support regenerative

tourism.

Nature-positive tourism is one practical expression of this regenerative approach. The

Commission promotes Natura 2000 as a distinctive asset for destination development,

positioning the network as a flagship of Europe’s sustainable and nature-based tourism offer.

As the world’s largest coordinated network of protected areas, Natura 2000 offers unique

opportunities to develop high-quality nature-based and low-impact tourism experiences that

contribute to biodiversity conservation while generating economic and social benefits for local

communities. In cooperation with Destination Management Organisations, competent

authorities for protected areas and local stakeholders, the Commission will continue to support

the development of sustainable visitor experiences, including hiking, cycling, wildlife

observation and cultural heritage activities, in line with conservation objectives of Natura 2000.

This approach will help destinations build their identity and attractiveness around their natural

and cultural assets, while ensuring that increased visibility and visitor demand are accompanied

by appropriate visitor management and measures to safeguard the ecological values on which

their long-term attractiveness depends.

The Staff Working Document on Natura 2000 and sustainable tourism provides illustrative

examples and a methodological framework to support the development and management of

sustainable tourism and recreational activities within and around Natura 2000 sites301. It also

explains how such activities relate to the sites’ conservation objectives and highlights the

flexibilities provided by the EU legal framework. When appropriately managed, sustainable

299 Mayo County Council, ‘The Great Western Greenway’, accessed November 2026. 300 T4T Expert Group, Sustainable Destination Management and Regenerative Tourism, accessed November

2026. 301 European Commission, Directorate-General for Environment, Staff Working Document on Natura 2000 and

Sustainable Tourism, Publications Office of the European Union, July 2026.

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tourism can also contribute to ecosystem restoration and help raise awareness among visitors

and local communities of the importance of nature. It can demonstrate that preserving and

enhancing the natural environment contributes to maintaining quality of life.

Examples:

Ibiza, Spain - The Posidonia Oceanica meadows in Ibiza, Spain, are essential for water clarity,

oxygen production, and carbon sequestration. Ibiza has launched awareness campaigns, such

as the ‘Viu la Posidònia’, to educate residents and tourists about its importance, fostering active

community participation in conservation. The island employs targeted measures such as

ecological buoys to prevent anchoring damages in sensitive marine areas, notably in the

Talamanca Bay. It has also pioneered a five-year marine restoration project focused on

regenerating Posidonia meadows, involving scientific research, government agencies and

citizens302.

Jelgava, Latvia - The city of Jelgava, in Latvia, features over 390 hectares of maintained parks,

a Natura 2000 site (Lielupe floodplain meadows), and urban forests that support biodiversity

and provide recreational opportunities for residents and visitors alike. To protect and maintain

these sites, the city implements different solutions. The Natura 2000 zones are maintained with

smart visitor flow monitoring during sensitive periods (e.g., bird nesting). The Pasta Island and

Svēte meadows have been revitalised for public use and feature walkways, pastures and

educational signage. Nature protection and tourism is part of the Jelgava Technical School

education programme, with students conducting local research on eco-tourism potential in the

city and the region303.

European Charter for Sustainable Tourism in Protected Areas of the EUROPARC

Federation provides a practical management tool enabling protected areas, their communities

and businesses develop tourism sustainably. The Charter promotes a careful tourism planning

in protected areas and a shared, territory-wide strategy developed through a participatory

approach. Growing since 2001, the Charter gathers a network of 91 protected areas in 13

countries with 1500 sustainable partners and 41 tour operators304.

Smart, green and resilient marinas

Transforming marinas into smart, green hubs is essential to support the sustainable

development of yachting and nautical tourism. This requires an integrated management model

aimed at accelerating investments in alternative fuel infrastructure, onshore power supply,

digital management tools, circular waste solutions and eco-friendly mooring systems,

alongside the development of a European digital platform for berthing availability. By utilising

shared data for real-time berthing optimisation, this framework could improve berth allocation,

help balance seasonal tourist flows and reduce pressures on vulnerable coastal areas,

particularly in the highly strained Mediterranean basin, including pressures on local electricity

grids, freshwater resources and Marine Protected Areas. In full alignment with the principle of

territorial cohesion, this framework will also take into account insular specificities by

302 Ibiza Preservation, Marine Protection, accessed November 2026. 303 Nature Conservation Agency of Latvia, https://www.daba.gov.lv/en, accessed November 2026. 304 EUROPARC Federation, European Charter for Sustainable Tourism in Protected Areas, accessed November

2026.

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unlocking dedicated financial pathways to help scattered island archipelagos modernise their

marina networks without placing an undue burden on small island economies.

3.2.4 Crisis preparedness and resilience

Tourism is increasingly exposed to disruptions originating outside the sector, including

geopolitical crises, extreme weather events, transport disruptions, cyber incidents and public

health emergencies. As tourism depends on complex and interconnected transport,

accommodation and service networks, disruptions can rapidly affect destinations, businesses

and travellers across borders. Recent crises have also highlighted the need for timely

information, coordinated communication and greater preparedness across the tourism

ecosystem.

The impacts of such disruptions are particularly acute for tourism SMEs and destinations that

depend heavily on seasonal revenues, a limited number of source markets or climate-sensitive

tourism products. High seasonal and geographical concentration can further increase exposure

by making local tourism economies dependent on relatively short periods of activity or a

limited number of visitor flows305.

The COVID-19 pandemic demonstrated the scale of the economic and operational

consequences that a systemic crisis can have for tourism306, with uneven impacts at regional

level.307 Russia's war of aggression against Ukraine has subsequently shown that, beyond the

destruction of tourism infrastructure and cultural assets, geopolitical insecurity can have

prolonged and geographically uneven consequences. Tourism destinations in EU regions

bordering Russia, Belarus and Ukraine have reported declining visitor flows, weakened

investor and traveller confidence, increased operational uncertainty and more limited access to

finance, with particularly severe effects on SMEs that depend on seasonal revenues. These

developments form part of the wider socio-economic challenges facing the EU's eastern border

regions, which are addressed in the Commission Communication Strong regions for a safe

Europe, setting out measures to strengthen security, connectivity, economic resilience and the

long-term attractiveness of these regions.308 This is complemented by the EastInvest Facility,

launched by international financial institutions and national promotional banks to facilitate

access to financing and advisory services for businesses and investment projects in the eastern

border regions, thereby supporting their longer-term economic resilience and adaptation to the

changed geopolitical environment.309

The consequences of the war have also extended beyond the Eastern border regions. Changes

in transport connectivity and airspace use, higher energy and operating costs, displacement and

305 OECD, OECD Tourism Trends and Policies 2026, Chapter 1, ‘Tourism trends, performance and outlook’,

and Chapter 4, ‘Adapting tourism to extreme weather-related events’, OECD Publishing, Paris, July 2026. 306 Eurostat, Tourism Satellite Accounts in Europe – 2023 edition, Publications Office of the European Union,

Chapter 8, “Insights on the impact of the COVID-19 pandemic on the tourism sector”, pp. 31–35, accessed April

2023. 307 Curtale, R., Batista e Silva, F., Proietti, P. and Ribeiro Barranco, R., “Impact of COVID-19 on tourism

demand in European regions – An analysis of the factors affecting loss in number of guest nights”, Annals of

Tourism Research Empirical Insights, ISSN 2666-9579, 4(2), 2023, article 100112, JRC130009, November

2023. 308 European Commission, Communication on the EU’s eastern regions bordering Russia, Belarus and Ukraine:

Strong regions for a safe Europe, COM°(2026)°82 final, February 2026. 309 European Investment Bank (EIB) Group, “New platform to boost support for EU regions most affected by

the war in Ukraine”, February 2026.

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changing travel perceptions have affected destinations and tourism businesses across Europe.

At the same time, the response has illustrated the role that tourism-related infrastructure,

accommodation providers, transport operators and local communities can play in supporting

displaced persons and wider crisis-response efforts.

Responses to the consultation highlighted crisis preparedness as a growing priority.

Stakeholders called for improved communication channels, better access to reliable

information, stronger coordination between public authorities and industry, and practical

mechanisms to exchange good practices and lessons learnt during and after crises. They also

emphasised that resilience depends not only on responding effectively once crises occur, but

also on anticipating risks, strengthening preparedness and improving coordination across the

tourism ecosystem. In this context, preparedness needs to cover the full crisis cycle, including

risk assessment, prevention, contingency planning, immediate response, business continuity

and recovery.

Existing EU preparedness and response framework

Crisis management remains primarily a national responsibility. However, a substantial EU

framework supports Member States in anticipating, preparing for and responding to cross-

border and large-scale emergencies. Together, these instruments provide an important

foundation for strengthening the resilience of the tourism ecosystem. The Preparedness Union

Strategy promotes an integrated all-hazards and whole-of-society approach to anticipating,

preventing and responding to crises, covering risks ranging from geopolitical conflict and cyber

threats to climate-related disasters and health emergencies310. It includes measures to improve

early warning systems, increase risk awareness, promote at least 72 hours of household self-

sufficiency, integrate preparedness into education and ensure disability-inclusive emergency

preparedness. These measures are particularly relevant to tourism and business travel, where

visitors may be unfamiliar with local risks, emergency procedures and official information

channels.

Building on these measures, tourism destinations and operators can play an important role in

ensuring that visitors know how to access official warnings, contact emergency services

through 112, and follow evacuation or shelter-in-place instructions, while preparing their own

staff, emergency plans, communication arrangements and essential supplies to support visitors

during disruptions. Strengthening cooperation between tourism stakeholders, local authorities

and civil protection services is therefore essential to translate population preparedness into

practical measures that protect visitors and reinforce the resilience of European tourism. The

Union Civil Protection Knowledge Network can further support these efforts by facilitating the

exchange of knowledge, good practices and lessons learned from projects funded under the

Union Civil Protection Mechanism, including those addressing tourism-related risks.

In the context of wildfires, the Commission Communication on integrated wildfire risk

management encourages Member States to strengthen cooperation between tourism

stakeholders, farmers, foresters, local authorities and fire safety experts to raise visitors' risk

awareness.311 Stronger cooperation between tourism operators, destination authorities and civil

310 European Commission, EU Preparedness Union Strategy, March 2025. 311 European Commission, Communication on Integrated Wildfire Risk Management, COM(2026) 330 final,

March 2026.

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protection services can help ensure that visitors, who may be unfamiliar with local risks and

procedures, receive timely information and appropriate assistance during emergencies.

Several horizontal EU mechanisms and instruments are directly relevant to the resilience of the

tourism ecosystem:

• The Union Civil Protection Mechanism strengthens cooperation between Member

States and participating states in disaster prevention, preparedness and response. When

activated, the Emergency Response Coordination Centre coordinates offers of

assistance, expertise, transport and logistical support. The Mechanism can also support

consular evacuation operations, including by facilitating transport arrangements

serving citizens of several Member States.312

• The Transport Contingency Plan provides a toolbox for responding to crises affecting

passenger and freight transport and seeks to preserve connectivity, passenger protection

and the functioning of the Single Market during transport emergencies.313

• The Internal Market Emergency and Resilience Act, applicable since 29 May 2026,

establishes a horizontal framework to improve preparedness, coordination and

information exchange and to safeguard the free movement of goods, services and

persons during major Single Market disruptions where no more specific sectoral

framework applies.314

• EU early-warning, monitoring and knowledge tools, including the Copernicus

Emergency Management Service, the European Flood Awareness System, the

European Forest Fire Information System, Climate-ADAPT, the European Climate and

Health Observatory and the Union Civil Protection Knowledge Network, provide risk

information, forecasting, mapping, guidance and opportunities for peer learning that

can support tourism authorities and destinations in their preparedness planning.315

• The EU Tourism Data Space, the EU Tourism Dashboard and market intelligence

produced by the European Travel Commission can complement operational crisis

information by improving access to timely, interoperable tourism data and helping

authorities assess changes in tourism performance, connectivity, demand and

destination-level impacts.316

• The European Solidarity Corps can contribute to the recovery and resilience of

destinations and communities affected by natural disasters and other crises, through

volunteering activities supporting community recovery, environmental restoration and

local resilience. Such activities can complement wider recovery measures while

creating opportunities for young people to discover and engage with affected

destinations and their communities, including beyond established tourism circuits,

312 European Commission, EU Civil Protection Mechanism, accessed November 2026. 313 European Commission, Communication on a contingency plan for transport, COM(2022) 211 final, May

2022. 314 European Commission, Internal Market Emergency and Resilience Act, October 2024. 315 European Commission, Copernicus Emergency Management Service; European Commission, European

Flood Awareness System (EFAS), Copernicus Emergency Management Service; European Commission,

European Forest Fire Information System (EFFIS), Copernicus Emergency Management Service; European

Commission and European Environment Agency, European Climate Adaptation Platform (Climate-ADAPT);

European Environment Agency and European Commission, European Climate and Health Observatory;

European Commission, EU Civil Protection Knowledge Network, all accessed November 2026. 316European Commission, Communication: Towards a Common European Tourism Data Space: boosting data

sharing and innovation across the tourism ecosystem, 2023/C 263/01, July 2023; European Commission, EU

Tourism Dashboard, accessed November 2026; European Travel Commission (ETC), official website, accessed

November 2026.

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fostering exchanges with local populations and stronger awareness of Europe's

territorial and cultural diversity.317

These horizontal structures are complemented by sector-specific protections for travellers.

Directive (EU) 2015/2302 on package travel establishes rights and obligations where

unavoidable and extraordinary circumstances significantly affect the performance of a package

or the carriage of passengers included in the package. It also requires Member States to ensure

effective protection of travellers against the insolvency of package organisers, including the

refund of payments and the repatriation of stranded travellers, through national insolvency

protection systems. The rules on cancellations of packages due to unavoidable and

extraordinary circumstances and on insolvency protection were updated and clarified through

a revision318 adopted in April 2026. On that occasion, the Directive was also complemented

through rules on vouchers319, which organisers may offer as an alternative to a refund within

14 days where a package is cancelled, and a 7-day business-to business refund right320 where

a service provider cancels a service included in a package. The 2026 revision aims to address

issues identified during the COVID-19 health crisis and to make the legal framework more

crisis-proof.

The EU consular protection framework is also relevant to travellers affected by crises outside

the Union. EU citizens who are in a third country where their own Member State is not

represented may seek consular protection from another Member State present, under the same

conditions as that Member State applies to its own nationals. Cooperation between consular

authorities, EU Delegations and the Union Civil Protection Mechanism can be particularly

important during large-scale emergencies and evacuation operations.

The European Union Solidarity Fund (EUSF)321 supports EU Member States and accession

countries following severe natural disasters and, since 2020, major public health emergencies.

It provides financial assistance for essential emergency and recovery operations, including:

• restoring the working order of infrastructure and plant in the fields of energy, water and

wastewater, telecommunications, transport, health and education;

• providing temporary accommodation and funding rescue services to meet the needs of

the population concerned;

• securing preventive infrastructure and measures of protection of cultural heritage;

• cleaning up disaster-stricken areas, including natural zones, in line with, where

appropriate, ecosystem-based approaches, as well as immediate restoration of affected

natural zones to avoid immediate effects from soil erosion.

While the EUSF does not directly reimburse private entities, it supports Member States in

quickly restoring essential infrastructure and cultural and natural heritage, which are important

for the recovery of tourism destinations following a disaster.

317 European Commission, European Solidarity Corps (ESC); European Youth Portal, Types of European

Solidarity Corps projects, both accessed November 2026. 318 European Parliament and Council of the European Union, Directive (EU) 2026/1024 amending Directive (EU)

2015/2302 on package travel, April 2026. 319 European Parliament and Council of the European Union, Directive (EU) 2026/1024 amending Directive

(EU) 2015/2302, Article 12a (Vouchers), April 2026 320 European Parliament and Council of the European Union, Directive (EU) 2026/1024 amending Directive

(EU) 2015/2302, Article 22(2), April 2026. 321 European Commission, EU Solidarity Fund, accessed November 2026.

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Example: ESF interventions322

Spain: rebuilding after devastating wildfires – In 2025, Spain endured a series of extreme

weather events, including prolonged drought, intense heatwaves, and three major wildfire

outbreaks, forcing mass evacuations and tragically claiming eight lives. The Commission is

proposing a total of €120.4 million, including an advance payment of over €30 million already

granted, to support recovery efforts, including the restoration of critical infrastructure such as

water, wastewater, telecommunications, education, transport, and cultural heritage. Funds will

also be allocated for temporary accommodation and emergency rescue services.

Cyprus: recovering from unprecedented wildfires – Cyprus experienced two catastrophic

wildfires in July 2025, primarily in the Limassol and Paphos regions. The Commission is

proposing a total of €9.2 million, which includes an advance payment of €2.3 million already

paid to Cyprus, to support the restoration of energy, water, wastewater, telecommunications,

and transport infrastructure.

Austria and Poland: Recovery efforts following devastating floods in autumn 2024 – The

European Commission has finalized the disbursement of €108 million from the EU Solidarity

Fund (EUSF), of which €32 million for Austria on top of an advance payment of €10 million

received in April, and €76 million for Poland. The payments follow the approval by the

European Parliament and the Council of the Commission proposal which was based on

applications submitted by these countries. In September and October 2024, severe and

persistent rainfall led to significant flooding across several Central and Eastern European

countries. The EUSF support will help restore vital infrastructure across various sectors,

including transport, water and wastewater management, as well as infrastructure security

measures. Emergency and recovery operations may be financed by the EUSF retroactively

from day one of the disasters.

In addition, EU state aid frameworks323 allow for rapid and specific crisis and disaster support

to European businesses, where needed. The flexibility of the State aid rules to respond to major

economic shocks has been demonstrated through, for example, the State aid Temporary

Framework, which helped EU countries address the economic effects of the COVID-19

pandemic, the State aid Temporary Crisis and Transition Framework,324 which supported the

response to the economic consequences of Russia's war of aggression against Ukraine, and the

Middle East crisis Temporary State aid Framework325 supporting sectors particularly exposed

to the consequences of the Middle East crisis.

This extensive EU preparedness and relief framework provides a range of mechanisms that can

support tourism stakeholders and destinations in the event of major disasters and crises. Relief

is best managed close to where disasters and crises strike, while EU instruments provide

supporting and enabling frameworks at European level. In addition, the Strategy proposes that

the crisis preparedness workstream under the EU Tourism Alliance will regularly evaluate

emerging needs and, where appropriate, explore options for additional tourism-specific crisis

response tools.

322 European Commission, EU Regional Policy Projects Database, accessed November 2026. 323 European Commission, State aid, accessed November 2026. 324 European Commission, Temporary Crisis and Transition Framework, accessed November 2026. 325 European Commission, Middle East Crisis Temporary State Aid Framework (METSAF), accessed

November 2026.

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Experience from previous crises has nevertheless shown that horizontal emergency

mechanisms do not always provide tourism authorities with the detailed sectoral information

needed to assess impacts on visitor flows, bookings, destination economies, traveller behaviour

and tourism businesses. Tourism therefore also requires dedicated governance arrangements,

practical tools and sector-specific guidance to support preparedness and resilience. To help

address this gap, the Commission financed the Crisis Management and Governance in Tourism

project under the Single Market Programme, which developed practical tools and

recommendations to strengthen crisis preparedness and governance across the tourism

ecosystem326.

Example: Crisis Management and Governance in Tourism

The Crisis Management and Governance in Tourism project supported tourism authorities

and organisations across Europe in strengthening resilience through advisory services,

capacity building and the development of practical governance tools. Combining analytical

work with hands-on support for destinations, the project generated guidance and

recommendations that now provide a valuable foundation for future EU action on tourism

resilience.

Key outputs included:

• advisory support for 55 tourism authorities and organisations from 21 countries, each

developing an action plan to strengthen resilience and crisis preparedness;

• a comprehensive final report containing policy recommendations and best

practices327;

• 10 e-learning modules on crisis preparedness and governance made available through

the EU Academy328; and

• a repository of recommendations and practical resources published on the EU

Tourism Platform329.

The project highlighted the importance of:

• establishing clear governance structures and responsibilities for crisis management;

• integrating crisis preparedness into destination management and planning;

• strengthening communication with tourism businesses, travellers and residents;

• improving tourism intelligence and data to support decision-making; and

• reinforcing cooperation between public authorities, destination management

organisations and the private sector.

These policy efforts are complemented by projects funded under the Union Civil Protection

Mechanism (UCPM) addressing disaster preparedness in tourism destinations. For instance,

326 European Commission, European Innovation Council and SMEs Executive Agency (EISMEA), Crisis

Management and Governance in Tourism, accessed November 2026. 327 European Commission, European Innovation Council and SMEs Executive Agency, Crisis Management and

Governance in Tourism: Final Report, Publications Office of the European Union, 2024. 328 European Commission, EU Academy, Crisis Management and Governance in Tourism, accessed November

2026. 329 European Commission, EU Tourism Platform – Knowledge and Learning, accessed November 2026.

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the WUITIPS project (Wildland-Urban-Interface Fire Touristic Infrastructures Protection

Solutions) contributed to assessing and mitigating wildfire risks in tourist areas. The project

assessed the vulnerabilities and effectiveness of risk mitigation measures in tourist facilities

and the associated populations during forest fire emergencies in cross-border situations across

the EU. As a result, it provided harmonised guidelines for implementing prevention and

protection plans in tourist infrastructures, self-assessment tools and checklists for asset and

people vulnerability, and examples of product applications in pilot sites. In addition, other

UCPM-funded projects such as THEMIS330, FIRE-SCENE331 and CAMPER SAFE332 support

improved risk assessments, emergency preparedness planning, visitor risk awareness,

evacuation arrangements and coordination between tourism operators and civil protection

authorities. Their results provide practical tools and good practices that can be further

disseminated and scaled up to strengthen the resilience of European tourism destinations333.

Strengthening tourism-specific coordination

Recent experience has demonstrated the importance of strengthening coordination at European

level specifically for tourism. Tourism authorities require timely, reliable and interoperable

information and data on developments affecting travel demand, transport connectivity, visitor

flows, destination impacts and business continuity. Such information is essential for

strengthening situational awareness, supporting evidence-based decision-making and

anticipating emerging risks. Effective preparedness also depends on continuous monitoring and

close cooperation between public authorities and the tourism ecosystem. This creates added

value for a light and flexible mechanism for structured information exchange between Member

States, the Commission and relevant tourism stakeholders, while remaining fully

complementary to existing horizontal EU crisis management structures.

The close interdependence between tourism and transport also highlights the importance of

coordination with transport authorities, as disruptions to aviation, rail and maritime services

often have immediate impacts on tourism flows and destination economies. Conversely,

sudden changes in tourism demand may affect transport capacity, connectivity and the

commercial viability of routes, particularly for peripheral, island and border destinations.

As announced in the Commission Notice providing guidance on EU rules applicable to

passengers, tourism and transport operators in light of the reduced supply of jet fuel from the

Middle East,334 the Commission established a Tourism Crisis Coordination Networkbringing

together tourism authorities from Member States. The Network does not replace operational

330 European Commission, Directorate-General for European Civil Protection and Humanitarian Aid Operations,

DG ECHO, THEMIS – Strategic Framework for Raising Public Awareness and Training Programmes for

Disaster Risk Management in the Tourism Sector, EU Civil Protection Knowledge Network, accessed

November 2026. 331 European Commission, Directorate-General for European Civil Protection and Humanitarian Aid Operations,

DG ECHO, FIRE-SCENE: Advancing Wildfire Civil Protection Scenarios into Risk Planning and Governance,

EU Civil Protection Knowledge Network, accessed November 2026. 332 European Commission, Directorate-General for European Civil Protection and Humanitarian Aid Operations,

DG ECHO, CAMPER SAFE: Disaster Risk Management Initiative for Campsite Safety, EU Civil Protection

Knowledge Network, accessed November 2026. 333 European Commission, Directorate-General for European Civil Protection and Humanitarian Aid Operations,

DG ECHO, EU Civil Protection Knowledge Network – Project, accessed November 2026. 334 European Commission, Commission Notice – Guidance clarifying certain EU rules applicable to passengers

and tourism as well as transport operators, including in light of the current reduced supply of jet fuel from the

Middle East, OJ C, C/2026/2669, May 2026.

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emergency management, civil protection, consular assistance or sectoral enforcement

structures. Its purpose is to complement these mechanisms by providing a dedicated forum

through which tourism authorities can develop a shared understanding of emerging risks,

exchange sector specific information and good practices, and identify issues requiring

coordination with the competent authorities.

Improved preparedness and coordination can benefit tourism businesses and destinations by

reducing operational disruption and supporting faster recovery, while travellers benefit from

clearer and more consistent information and assistance during crises.

Example: First meeting of the Tourism Crisis Coordination Network (10 July 2026,

online)

At its first meeting in July 2026, participants concluded that the impact of the Middle East

crisis on EU tourism remained largely indirect and manageable. Discussions focused on

transport connectivity, rising fuel costs and traveller confidence, while industry

representatives confirmed that the overall outlook for European tourism remained positive

despite pressures in certain markets and destinations. Participants nevertheless agreed on the

importance of maintaining continuous monitoring of developments, recognising that the

duration and wider impacts of geopolitical crises remain inherently uncertain.

Participants also agreed that climate-related disruptions, including wildfires, floods,

heatwaves and water scarcity, increasingly represent a structural challenge for tourism rather

than isolated exceptional events. These risks can affect destination safety, seasonality,

infrastructure, natural and cultural assets, working conditions and the availability of transport

and other essential services, requiring greater preparedness and resilience.

The meeting demonstrated the value of a coordination mechanism through which tourism

authorities can exchange information, share good practices and develop a common

understanding of emerging risks, while supporting evidence-based communication and

coordinated preparedness across the tourism ecosystem.

3.3 Sustainable connectivity

Strong consumer and passenger rights and their effective enforcement are key elements for

sustaining and increasing Europe’s attractiveness as a tourist destination.

Sustainable connectivity, seamless mobility, and smooth passenger experiences are powerful

drivers of tourism, with overall connectivity itself being the core issue for destinations.

Delivering on these requires further enhancing the diversity and combination of transport

choices available in the EU, allowing travellers to use the best combination of transport modes

to arrive at and get around their destinations, with a need to also include sustainable mobility

options.

At the same time, tourism is itself a powerful driver of sustainable travel and transport

infrastructure. Mobility options for tourism also serve residents and transport connected sustain

supply chains, for instance for local produce and businesses. Creating a virtuous tourism-

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transport cycle plays an important role in making the ‘freedom to stay’335 a reality. Weak

transport links can reinforce territorial disparities and make it more difficult for people to

remain in certain regions. Improving accessibility is therefore a key enabling condition for

making the ‘freedom to stay’ a reality. This includes stronger regional connectivity, better

integration of transport systems, and more frequent and reliable services, including across

borders and between remote areas and other bigger towns and cities.

3.3.1 Planning and booking a journey

The first stage of any tourist experience is planning and booking. In the EU, evidence has

shown that travellers can encounter unnecessary complexity in the planning and booking of

transport services. For certain transport modes, such as aviation, travellers have had easy access

to tickets for decades336. For rail services and multimodal journeys, evidence has shown that

travellers face more difficulties when searching for and booking tickets. A Eurobarometer

survey from 2024 confirmed that among 26,000 EU citizens a third never booked a multimodal

or multi-operator journey. The survey also showed that over a third of those who book such

journeys experience booking barriers, including that they couldn’t find a suitable combination

or buy all the tickets they needed in one place, and that in rail those barriers are greater337.

The recently adopted proposals for a Regulation on Multimodal Booking, the Rail Ticketing338

Regulation and the targeted revision of the Rail Passenger Rights Regulation (collectively

referred to as ‘the Passenger Package’)339 will improve how online ticket distribution works,

establishing rules for cooperation between ticketing platforms and transport operators and

granting full passenger rights for rail journeys under a single ticket. They aim to increase the

number of rail tickets available on online platforms by facilitating the search, comparison and

booking process for regional and long-distance transport services sold in the EU. The Passenger

Package is expected to boost consumer confidence and hence demand for rail travel thereby

contributing to the sustainability and competitiveness objectives, as well as increasing the

attractiveness of rail for tourism.

Travellers can also face challenges in planning and accessing relevant information on transport

services on arrival at a new destination. With the swift implementation of the Delegated

Regulation on Multimodal Travel Information Services (MMTIS)340by Member States,

passengers will gain access to real-time travel information, including updates on flight, train,

335 Enrico Letta, Much More than a Market – Speed, Security, Solidarity: Empowering the Single Market to

Deliver a Sustainable Future and Prosperity for All EU Citizens, Report to the European Council, p. 16, April

2024. 336 Kiss, M., The Impact of Unfair Commercial Practices on Competition in the EU Passenger Transport Sector,

in particular Air Transport, European Parliament, Policy Department for Economic, Scientific and Quality of

Life Policies, p. 13, April 2020. 337 European Commission: Directorate-General for Mobility and Transport, Multimodal digital mobility service

– Report, Flash Eurobarometer 551, August–September 2024, Publications Office of the European Union,

accessed November 2026. 338 European Commission, Proposal for a Regulation of the European Parliament and of the Council on Rail

Ticketing, COM(2026) 232 final, 2026/0115 (COD), Brussels, May 2026. 339 European Commission, Directorate-General for Mobility and Transport, One journey, one ticket, full rights:

Commission simplifies Europe-wide travel booking and train travel, May 2026. 340 European Commission, Directorate-General for Mobility and Transport, Commission Delegated Regulation

(EU) 2017/1926 Supplementing the ITS Directive with Regard to the Provision of EU-wide Multimodal Travel

Information Services, as Amended by Delegated Regulation (EU) 2024/490: Implementation Handbook,

November 2024.

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ferry, and transport-on-demand delays or cancellations, alongside parking availability for

bicycles, scooters and cars.

Also, when planning a journey, tourists and tourist coach operators need to consider their

compliance with local access rules, such as low- and zero-emission zones which restrict access

to certain vehicles. Urban vehicle access regulations (UVARs), including low and zero-

emission zones, are increasingly used by local authorities in cities across the EU to address

urban mobility challenges such as air pollution or congestion. Local authorities are responsible

for implementing and enforcing these schemes, including by providing advance registration

possibilities for foreign vehicles and by clearly communicating the applicable rules and the

boundaries of regulated areas through road signage and digital or other publicly available

information. At present, vehicle owners might be required to buy a sticker or to pre-register

their vehicle even if it is principally compliant with the applicable emission requirements since

the local authorities have limited possibilities to access vehicle registration information and

since the diversity of UVAR schemes prevent streamlined compliance schemes. This situation

can create practical difficulties and uncertainty for citizens travelling across the EU, in

particular where they need to understand how to comply with several different local schemes,

often also in a language they do not master.

To facilitate compliance and reduce unnecessary burden, the Commission will launch a new

initiative to support the provision of such information, starting with the TEN-T urban nodes,

and facilitate user-friendly vehicle compliance for Urban Vehicles Access Regulations. In

2027, the Commission will start work on digitising available information on UVARs, and

making this information available to citizens and corporate users in a user-friendly and

interoperable framework. This action will reduce information cost and uncertainties about

compliance needs. In this context, the Commission intends to develop by 2028 an information

access point for citizens, integrated into the existing Your Europe portal. It should provide

reliable and up-to-date information on UVARs across the Union. The Commission will further

investigate measures that will facilitate a user-friendly digital vehicle compliance verification

mechanism, by possibly tapping European Digital Solutions such as the European Digital

Wallet (EUDIW).

In January 2026, the expert group on urban mobility (EGUM) 341 issued a report342 addressing

the impacts of city access restrictions on coach operations, with a particular focus on coach

tourism. The EGUM will continue with another report to be delivered by end 2026 to deepen

the knowledge on existing challenges, barriers and potential measures to facilitate better

mobility experience in cities including the alignment of tourism and sustainable urban mobility

needs to provide practical insights for (tourism) businesses, local authorities and city planners.

Having access to relevant data is also important to allow citizens to make sustainable choices.

Through CountEmissionsEU and the Flight Emission Label,343 passengers will be able to

341 European Commission, Directorate-General for Mobility and Transport, Expert Group on Urban Mobility,

accessed November 2026. 342 European Commission, Directorate-General for Mobility and Transport, EGUM Report: City Access for

Businesses and Coach Transport, January 2026. 343 European Parliament and Council of the European Union, Regulation (EU) 2026/1030 of 29 April 2026 on

the greenhouse gas emissions accounting of transport services, Official Journal of the European Union, April

2026; European Commission, Commission Implementing Regulation (EU) 2024/3170 of 18 December 2024

laying down detailed provisions concerning the voluntary environmental labelling scheme for the estimation of

the environmental performance of flights (Flight Emissions Label), Official Journal of the European Union,

December 2024.

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compare the estimated volume of emissions associated with different travel options and make

informed choices.

3.3.2 Ensuring a sustainable, seamless and accessible travel experience across

Europe

To improve the overall travel experience in the EU, gaps in transport services should be

addressed across all available transport modes. The foundations of an optimal transport offering

for tourists should first and foremost build on completing the single European transport market,

as well as the parallel greening of all transport modes, in line with the EU’s climate targets, be

it related to zero-emission vehicles or the decarbonisation of the aviation and maritime sectors

through phased in use of sustainable fuels.

Concurrently, this transition must provide barrier free accessibility to the extent possible,

ensuring that infrastructure services and digital interfaces are universally designed to

accommodate persons with disabilities and persons with reduced mobility. When travelling in

the EU, tourists have many different transport modes to choose from – from road, coach and

rail to flights and ferry connections. The Commission aims to address any barriers and ensure

a high-quality transport offering for tourists across all available transport modes.

Local mobility

Sustainable local mobility solutions are essential for communities of all sizes, for residents as

well as for tourism.

Urban tourism mobility. Tourism can increasingly be a mobility and public space stress test

for Europe’s cities: seasonal peaks and event surges create concentrated demand on public

transport, roads and walking networks; coaches and cruise flows compete for scarce space; and

historic centres often lack the physical capacity to absorb traffic without undermining safety,

air quality and resident liveability. Cities need to anticipate visitor flows, manage peaks and

access, and steer mode choices towards public transport, walking and cycling while

maintaining reliable everyday mobility for residents and workers.

Planning is therefore key. The EU has developed the concept of sustainable urban mobility

plans (SUMP). A SUMP344 is a strategic plan designed to satisfy the mobility needs of people

and businesses in cities and their surroundings for a better quality of life. It builds on existing

planning practices and takes due consideration of integration, participation, and evaluation

principles. A SUMP should cover a geography which goes beyond the city administrative

borders taking into account real traffic flows and should foresee cooperation and synergies

between all levels of government, local, regional, national and across different policy areas. It

ensures a variety of sustainable transport options for the safe, healthy and fluid passage of

people and goods, with all due consideration for fellow residents and the urban environment.

The SUMP Guidelines345 which give cities advice on a process for preparing and implementing

344 European Commission, Directorate-General for Mobility and Transport, Sustainable Urban Mobility

Planning and Monitoring, accessed November 2026. 345 European Commission, Directorate-General for Mobility and Transport, Guidelines for Developing and

Implementing a Sustainable Urban Mobility Plan, Third Edition, EU Urban Mobility Observatory, June 2026.

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their SUMPs were updated in 2026 to better support cities in developing and implementing

SUMPs.

Rural tourism mobility. In many parts of Europe, rural communities experience a significant

mobility deficit, as access to essential services like employment, education, healthcare, and

recreation becomes increasingly concentrated in urban centres. This trend deepens reliance on

private vehicles, exacerbating socioeconomic inequalities, increasing carbon emissions, and

putting individuals without access to a car at risk of transport poverty.It also creates

unfavourable conditions for tourism. Recent EU guidance on sustainable rural mobility and

ecotourism346 aims to address these issues by promoting interconnecting rural mobility in

neighbouring SUMPs and showcasing good practice examples for sustainable rural mobility,

including shared and active mobility solutions.

Example cases:

South Tyrol Alto Adige Guest Pass347

The South Tyrol Alto Adige Guest Pass, included in nearly all tourist stays is sent to guests

before their arrival and offers unlimited access to trains, buses, shuttles and select cable cars,

encouraging visitors to leave their cars behind. This allows guests to use buses, regional trains

and select cable cars throughout South Tyrol (IT) from the day of their arrival with just one

ticket.

The initiative supports rural and urban mobility, strengthens public transport and engages

accommodation providers as partners in promoting car-free travel. By making sustainable

transport the default option, it reduces congestion, lowers emissions and fosters a culture of

shared mobility, beneficial to both visitors and local communities. The Guest Pass also includes

additional benefits such as activities, guided tours, admission fees or discounts.

The South Tyrol Guest Pass is based on voluntary opt-in by the singe tourist destinations in

South Tyrol. The scheme foresees a minimum opt-in that increased over the year: in 2023 at

from at least 70% of all overnight stays in 2023 at least 90% of all overnight stays in 2025.

Austria: Tourism Mobility Day and tourism mobility platform348

Since 2014, the ministries responsible for tourism, mobility and environment initiated a closer

cooperation under the Tourism Mobility Day to strengthen the link between the tourism and

mobility sectors and implement best practices. This annual conference continues to enjoy great

interest and rising participation, since several years also from neighbouring countries. In 2016,

the tourism mobility platform was introduced in its wake, allowing stakeholders from the

tourism and mobility sector at national and regional level to discuss challenges, possible

cooperation and best practices biannually.

A particular focus is put on increasing the awareness of guests, the local population and tourism

employees, creating and communicating “last mile” solutions, including active mobility and

346 European Commission, Directorate-General for Mobility and Transport, Commission Publishes New

Guidance on Sustainable Rural Mobility and Ecotourism, July 2025. 347 Südtirol GuestPass, Südtirol GuestPass – Benefits Portal, accessed November 2026. 348 Austrian Federal Ministry for Economy, Energy and Tourism, Mobilität im Tourismus, accessed November

2026.

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ticketing. Results of the cooperation are, among other things, direct contact persons, mobility

coaches in destinations, guest cards including mobility services, as well as national rail

operators (ÖBB and Westbahn) closely cooperating with individual tourism destinations on

service design and marketing. Further, three regions, Salzburg (2025), Carinthia (2026), have

introduced free public transport in the entire territory for all overnight guests. This is being

financed through a part of the tourist tax on overnight stays. In Burgenland (2025), guests can

access free public transport through the free Burgenland card.

Tourism mobility on (small) islands.

Significant seasonal tourist flows put great pressure on the transport systems of small islands,

with this seasonality leading to serious swings in population and transport demand. The

Sustainable Island Mobility Plan Guide (SIMP),349 developed by CIVINET Greece-Cyprus350

(the Greek-speaking local network of CIVITAS) with the University of the Aegean and

published in 2024, offers a hands-on framework for designing affordable, people-centred

mobility in small and medium-sized territories. A typical small or medium-sized Greek island

has no urban area, but its seasonal population, both in terms of the largest settlement and in

terms of the island as a whole, is often of an urban size, but without the urban infrastructure

and mobility services.

Multimodal passenger hubs (MPHs). MPHs are an important aspect of tourism connectivity.

They act as a gateway between cities and long-distance transport infrastructure and services.

These hubs should serve to connect and integrate the local mobility system with long distance

services, enabling a smooth arrival, departure or transit experience and offer sustainable

mobility options to continue to last legs of journey. The SUMPs to be developed for the 431

urban nodes on the trans-European transport network will provide the strategic framework for

this and determine how MPHs are embedded in cities to meet the needs of passengers. This

requires reliable and properly integrated last-mile mobility services. Governance is a critical

enabler of seamless mobility as it coordinates the interests and responsibilities of many

stakeholders, including infrastructure managers, train operators, urban public transport

authorities and urban mobility services providers.

During the 16th Florence Intermodal Forum351, co-organised with the Transport Area of the

Florence School of Regulation, experts explored the best practices, identify persistent

bottlenecks, and discuss the governance frameworks needed to establish efficient multimodal

hubs. The Commission will take forward this work with experts, to better understand what the

key components of a fully functioning MPHs are and what the investment needs are. As a first

step, the expert group on urban mobility will issue end 2026 a report building on the results of

the 2025 stocktaking study on multimodal passenger hubs352, providing (1) feedback and types

of investment needed to integrate all modes of transport, including active travel and

micromobility, and how privately operated mobility services (e.g. coaches and taxis) can be

accommodated; (2) summary of the technical requirements currently applying to multimodal

passenger hubs and future requirements needed to comply to the TEN-T Regulation (e.g.,

charging, refuelling, travel information, connecting long distance and urban modes etc.) and

349 CIVITAS, Sustainable Island Mobility Plan: How to Prepare a SIMP for a Small or Medium-Sized Greek

Island, May 2024. 350 CIVITAS, CIVINET Greece-Cyprus, CIVITAS Initiative, accessed November 2026. 351 Florence School of Regulation (FSR), Linking Urban Multimodal Hubs to the High-Speed Rail, 16th

Florence Intermodal Forum, European University Institute, March 2026. 352 European Commission, Directorate-General for Mobility and Transport, EU Urban Mobility Observatory,

accessed November 2026.

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(3) a collection of best practices and case studies of multimodal passenger hubs that have

already been developed and implemented, with a special focus on connections to long-distance

high-speed rail.

Public transport information provision and ticketing. While tourists should be able to move

around easily upon arrival, they often struggle to access the information and payment methods

needed to use local public transport services – a complication often deterring them from using

these options. To simplify journey planning, booking and payments across cities, the

Commission welcomes and encourages an initiative led by public transport authorities and

associations to develop solutions ensuring EU-wide interoperability of local transport systems

for travel information access and ticket purchasing.353 The objective is to significantly improve

the tourist experience and encourage public transport use by ensuring that simple digital options

are accessible and inclusive, while enabling digital payment solutions.

Based on pilot projects and good practice examples354, the Commission will encourage further

exploration and scaling up of combined offers for public transport and tourism activities. The

continued rollout of EUDI Wallets can be useful in that context, simplifying the identification

and payment flow for users and participating entities.

On-demand transport. Local mobility services also include passenger transport-on-demand

(taxi and private hire vehicle (PHV) services). Especially app-based services offering up-front

pricing and electronic booking which often appealing for tourists. Affordable and high-quality

local transport, including transport-on-demand services, add to the attractiveness of a

destination. The Commission continues monitoring that Member States’ rules governing these

services are in compliance with the EU treaties. The Commission also considers conducting a

new study on the development of the local passenger transport-on-demand sector (taxis and

PHV), its obstacles, its potential (in support of decarbonisation and multimodal mobility) and

its role for the tourism sector.

Bike-sharing and shared micromobility services. They help visitors cover short urban and

peri-urban distances without relying on taxis or PHVs. They can also improve access to cultural

sites, waterfronts, parks and neighbourhood attractions that are not always well served by

conventional public transport, helping to spread visitor flows more evenly and support local

economies beyond the main tourist hotspots. When well integrated with public transport, digital

journey planning and clear local rules, they can improve the overall visitor experience.

Appropriate infrastructure, parking management, data-sharing, safety measures and seasonal

demand planning are important. In this sense, bike-sharing and shared micromobility are best

seen as enabling tools within broader sustainable urban mobility planning (SUMP) and

destination management strategies. This will be considered in the dedicated guidance on the

link between tourism and sustainable urban mobility planning.

Examples:

Through the Urban Sustainable Mobility Plan, Genoa355 is accelerating its transition to green

mobility. The city has installed 280 electric charging stations, bicycle stations across the city

353 European Commission, Directorate-General for Mobility and Transport, Multimodal Travel Information,

accessed November 2026. 354 IDM Südtirol-Alto Adige, “Südtirol Guest Pass’’: Deine Gästekarte für den Südtirolurlaub, accessed

November 2026. 355 Invest in Genova, SUMP – Sustainable Urban Mobility Plan, accessed November 2026.

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and next to main transportation hubs like stations. Additionally, the city encourages transport

sharing and facilitates the use of bicycles through the introduction of speed limits, restricted

traffic zones and incentives to purchase electric bicycles and scooters, as well possibilities of

bike sharing, bike parking places and night-time bike parks at the main city stations, further

encouraging citizens to choose a greener and more sustainable mode of transport for their

commute.

Since 2022 Braga supported uptake of cycling. It launched a pilot project called

Bicification356 designed to include the construction of bike lanes by default in road

infrastructure projects. The Braga Ciclável initiative plays a key role in encouraging daily

bicycle use through awareness campaigns and strategic partnerships. Biking infrastructure and

needs were framed within the city’s Sustainable Urban Mobility Plan (SUMP), which sets

emission reduction targets and outlines principles for sustainable urban development.

Additionally, the BICIFICATION project supports Braga’s ambition to foster a strong cycling

culture. The city’s initiatives have created a great impact already – an increase of +50% in bike

lane usage has been recorded between 2022 and 2024.

The Paris Olympic Games357 demonstrated that large-scale visitor mobility can be managed

successfully, with a well-organised and well-planned urban transport system, with a focus on

accessible public transport and cycling, real-time mobility demand management minimising

congestion, and community engagement to ensure a positive experience of all participants. The

mobility improvements were designed to benefit residents long after the event, ensuring a

lasting legacy. At the crossroads of urban transport and rail services, Paris North Station

integrates a complete multimodal network. In the early 2020s, an ambitious project modernized

the station to accommodate the Paris 2024 Olympic Games, doubling its surface area and

making passenger flows more fluid. The renovation focused on the essentials: improving the

comfort and fluidity of travel. The work carried out includes the construction of a wooden

bicycle shed equipped with solar panels, the installation of new escalators and the

reorganization of waiting areas. The aim is to transform the North Station as a station for the

21st century, combining efficiency and aesthetics, while respecting its architectural heritage.

In 2025, Rome welcomed around 50 million visitors358, including those attending the

Catholic Jubilee, a major religious celebration that brought extraordinary flows of pilgrims to

the city. The event acted as a true stress test for the city’s innovation and mobility systems,

leaving behind a legacy, which is infrastructural: new transport investments such as two

additional metro stations on Line C, the expansion of electric mobility with 465 electric buses

and depot electrification, the creation of new cycling routes or the pedestrianisation of

previously car-dominated spaces.

The Intercambiador de Santa Cruz de Tenerife359 is a good example of a multimodal

passenger hub in an island context. Located in the capital city of Tenerife it serves both local

residents and visitors combining bus, tram, ferry, park & ride and micromobility services, while

also acting as a central point for distributing passenger flows across the island. By promoting

public transport and mobility services it contributes to reducing emissions, easing congestion

356 EIT Urban Mobility, Bicification: How the city of Braga has increased bicycle use in urban traffic, accessed

November 2026 357 Arthur D. Little, Paris 2024 Olympics, accessed November 2026 358 Eurocities, Rome prepares for the Jubilee of Hope in 2025, accessed November 2026. 359 TITSA, Correspondencias, accessed November 2026.

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enhancing accessibility across the island, in line with the Insular Plan for Sustainable Mobility

of Tenerife.

Lake Balaton Sustainable Rural Mobility Plan360 tackles seasonal tourism pressures through

integrated public transport, active travel, and the Balaton Sound TravelPass. It also tracks a

cycling route connecting Budapest to the lake. The plan aims to balance tourism development

with environmental conservation and spatial integration. Lake Balaton has become a leading

example of how rural and tourism-intensive regions can adopt innovative mobility strategies

to foster sustainable growth and regional resilience.

Examples: Insights from winners of the European Capital of Smart Tourism

Bordeaux (FR), Dublin (IE) and Gothenburg (SE)361 integrate sustainable urban mobility into

tourism through active travel, digital tools and accessibility measures. Across these three cities,

several patterns emerge that offer practical guidance for European urban mobility planners.

Each city treats tourist flows as part of the broader mobility system, not as separate visitor

infrastructure. This integration allows investments in walking routes, cycling infrastructure and

accessibility to benefit residents year-round while meeting tourism needs.

Gothenburg’s archipelago routes, Bordeaux’s suburban trails and Dublin’s Coastal Mobility

Route show how directing visitors to less central areas can reduce pressure on core networks,

spread economic benefits, and improve the visitor experience. This requires strong multimodal

connections and targeted communication campaigns.

From Gothenburg’s digital twin to Bordeaux’s cultural-transport passes and Dublin’s discovery

apps, technology is used to inform, guide, and influence visitor behaviour.

All three cities demonstrate that inclusive mobility planning strengthens both brand and

functionality. Gothenburg’s governance model, Bordeaux’s fully accessible public transport,

and Dublin’s Wayfinding Centre illustrate different approaches to embedding accessibility

across the tourism journey.

Implementation challenges, whether in coordinating multiple departments in Dublin or

managing construction disruption in Gothenburg, were overcome through proactive

stakeholder engagement, transparent communication, and strong partnerships between

government, industry, and civil society.

The central message from these three case studies is clear: sustainable urban tourism mobility

is not about standalone projects. It is about embedding visitor needs into the same

infrastructure, data systems and accessibility frameworks that shape daily life for residents,

ensuring tourism growth strengthens rather than strains the urban mobility ecosystem.

Road

Car rentals. The car rental sector is a sizeable EU market that in 2022 represented an estimated

65.8 million rentals, around EUR 19.7 billion in annual revenue and a fleet of more than 2

million vehicles, with around 75% of rentals linked to leisure and tourism. To improve

360 European Commission, EU Urban Mobility Observatory, Lake Balaton regional Sustainable Rural Mobility

Plan (SRMP) approach to tourism, accessed November 2026. 361 European Commission, EU Urban Mobility Observatory, Exploring the links between tourism and

sustainable urban mobility: Insights from winners of the European Capital of Smart Tourism, accessed

November 2026.

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seamless travelling across the EU by car, the Commission is preparing a proposal for easier

and more affordable use of rental cars across borders362. This will lead to more options for

renting cars.

In addition, the Commission continues to work with the car rental industry and social partners

to develop digital solutions for contactless check-in solutions. It will launch a pilot project on

basis of a voluntary agreement with the rental car sector to promote easy digital vehicle pick-

up for short-term rentals, allowing customers to complete check-out via smartphone and access

the vehicle directly by digital key, without having to visit a rental counter. Under such a

scheme, travellers could verify their identity and driving licence in advance, accept the contract

digitally, receive the vehicle location and unlock code or app-based key on arrival, inspect the

car with guided photos, and start the rental immediately, including outside standard opening

hours. Similar digital access models are already used in app-based car-sharing services, and

partial counter-free pick-up solutions are being deployed by some operators in several markets

(e.g. airports and railway stations in some Nordic countries and parts of Western Europe). A

voluntary EU-level pilot could help identify common practical standards, improve convenience

for tourists, reduce waiting times at airports and stations, and support a more modern and

efficient rental experience.

Driving rights are inherently linked to travelling beyond national borders as a tourist. The

recent revision of the driving licence directive makes it a much easier experience, through a

major novelty. While many Member States issued already digital (mobile) driving licences

these documents were so far not recognised beyond the borders of the issuer Member State.

Citizens had to carry therefore the physical card with them when abroad. This will now change

as, once the new rules start to apply, mobile driving licences issued by a Member State will be

recognised by all others. This will help simplify drivers experience, for instance when renting

vehicles abroad or when interacting with police forces.

Drivers remain free to decide whether to use a physical or mobile document, but the relevance

of the physical one will now mainly be limited to traveling to third countries that do not

recognize (yet) EU mobile driving licences. Moreover, as cross-border cooperation increases

between Member States as regards road safety related traffic offences, it is essential that drivers

are fully aware of traffic rules and sanctions they may face in case of non-compliance. The EU

facilitates this better understanding by making available information on traffic rules and, in the

future also on, sanctions in place in all Member States on the Your Europe portal.

At the same time, when crossing borders by car, travellers can encounter many different toll

stops. Allowing vehicles to pass through toll gates without stopping reduces traffic congestion

and emissions. The Commission, in cooperation with the industry, is exploring optionsto

facilitate cross-border travelling by creating larger free-flow areas across multiple

neighbouring countries. The initiative will explore available on-board-equipment (e.g. a

vignette or mobile application) for tolling in the respective Member States.

The new European Parking Card for persons with disabilities that is being created by Directive

(EU) 2024/2841363 will replace the current EU parking card for people with disabilities, which

362 European Commission, Taking car rentals into other EU countries – rules, Have Your Say: Public

Consultations and Feedback, accessed November 2026. 363 European Parliament and Council of the European Union, Directive (EU) 2024/2841 of 23 October 2024

establishing the European Disability Card and the European Parking Card for persons with disabilities, Official

Journal of the European Union, November 2024.

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is facing problems with mutual recognition and fraud and forgery as it is based on only

voluntary EU model without security features364. The new card is expected to have positive

impact on free movement and accessible tourism of persons with disabilities because it will be

mutually recognised and will ensure them equal access to parking rights and facilities reserved

for persons with disabilities across the EU. Moreover, the security features of the new card

should avoid its fraud and forgery and thus ensure that relevant parking spaces are not occupied

by drivers without the right to use them.

Example: Pécs’ smart parking system

The city of Pécs (Hungary), has made significant smart city developments, one of which being

the smart parking system.365 In the city centre, sensors have been installed in 709 parking

spaces to provide real-time information on the occupation of spaces. This data is available

through the free Parker app, helping drivers quickly find the available parking spots, reducing

not only the time spent looking for a parking spot, but also contributing to less city centre traffic

and lesser emissions. The app also includes navigation services that directly guide the visitor

to the chosen parking lot. Information displays at four locations, covering a total of seven

points, show available spaces nearby, further facilitating faster and more efficient access to the

city centre. This is especially useful during summer festivals, events, or the Advent season

when car traffic increases.

Coaches. Long-distance travel by coach often provides the most affordable long-distance

travel option, in particular for younger travellers, and its potential as a sustainable travel option

will be further achieved with the uptake of electric coaches. To support this, Regulation (EU)

2023/1804 on the deployment of alternative fuels infrastructure already requires Member States

to ensure that a complete network of recharging infrastructure for heavy-duty vehicles develops

along the TEN-T network and in urban nodes develops by 2030. Under the ongoing review of

the Regulation, the Commission will assess if the existing targets need to be supplemented with

specific targets for dedicated recharging infrastructure for coaches, for example in multimodal

passenger hubs.

The full potential of coach transport for tourism can only be realised if there is a genuinely

integrated EU market for the international carriage of passengers by road, resulting in low

prices, high-quality services and seamless integration with other modes of transport. Such a

framework will enable operators to develop resilient long-term solutions to attract passengers

and to make the necessary investments to enhance the environmental performance and safety

of their fleets. To this end, the Commission continues to enforce the common rules governing

access to the international market for coach and bus services. The freedom to provide services

is a fundamental principle of Regulation (EC) No 1073/2009 on common rules for access to

the international market for coach and bus services and requires that carriers from all Member

States are guaranteed access to international transport markets without discrimination on

grounds of nationality or place of establishment. The Commission continues to rigorously

monitor and enforce this Regulation in all Member States.

This also covers cabotage, which remains subject to the rules in force in the host Member State.

The definition of public service obligations must likewise comply with the provisions of

364 Council of the European Union, Council Recommendation 98/376/EC of 4 June 1998 on a parking card for

people with disabilities, Official Journal of the European Communities, June 1998. 365 Smart Lynx, Parker: The Smart Parking Mobile App, accessed November 2026.

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Regulation (EC) No 1370/2007, and public service contracts are, in principle, to be awarded

through competitive tendering procedures. Where appropriate, infringement procedures will be

launched against Member States that do not comply with Regulations (EC) No 1073/2009 or

1370/2007. In addition, under Article 8 of this Regulation, the Commission shall adopt a

decision when the Member States concerned are unable to reach agreement on a request for

authorisation for international regular coach and bus services.

Furthermore, to ensure more efficient and higher-quality occasional passenger transport

services, such as organised tours, Regulation (EU) 2024/1258 was adopted on 24 April 2024.

It introduces greater flexibility in the distribution of drivers’ breaks and rest periods and ensures

equal treatment of domestic and international occasional passenger transport operations.

Example: Spain’s discounted summer travel scheme for young people

Launched by the Spanish government in 2023, Verano Joven offers substantial public transport

discounts in domestic regular coach intercity services to young people aged 18 to 30 during the

summer months. Designed to make travel more affordable, the programme has also become an

example of how shared passenger road transport can support a more balanced and sustainable

tourism model. Spain's nationwide coach network allows young travellers to reach not only

major cities but also smaller towns, rural communities, coastal destinations, nature parks and

cultural heritage sites. Many of these places have limited rail connections or are difficult to

access without a private car. Results: More than 2.3 million young passengers travelled by bus

and coach through Verano Joven in 2025, compared with 1.6 million when the initiative was

introduced in 2023. That represents an increase of almost 45% in just two years. Today, more

than one in three young people in Spain choose coach travel during the summer campaign.

Rail

In 2025, nearly 1 in 8 trips of Europeans were made by train, representing 16.4% of domestic

trips and 6.15.9% of foreign trips.366 Today, with competition in rail not yet fully developed in

the Union, and with different taxation regimes for the various transport modes, rail ticket prices

are often more expensive than the costs for using less sustainable modes. In 2025, the

Commission adopted the High-Speed Rail Plan, which sets out the steps needed to create a

faster, more interoperable and better-connected network by 2040. It aims to cut journey times

and make rail a more attractive and sustainable alternative to short-haul flights. The

Commission works on a financing strategy for the plan to complement the ongoing work to

boost long-distance and cross-border passenger rail services. Moreover, to support the

implementation of the plan, the Commission will introduce a High-Speed Rail Scoreboard to

monitor the development of high-speed rail services across Europe, assess progress, and

support informed decision-making. As part of the High-speed Rail Plan, the Commission is

also working to identify investment priorities in 40 major airports for better air-to-rail

connectivity.

Air

Air connectivity is vital to the well-functioning of the Single Market, as well as to ensure the

accessibility of insular and remote destinations. 9.8% of the intra-EU trips367, and notably half

366 Eurostat, Trips by main mode of transport,, accessed November 2026. 367 European Commission, Directorate-General for Mobility and Transport, Statistical pocketbook 2025,

September 2025.

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of the cross-border trips, are carried by air.368 Effective competition is key in achieving

connectivity, as demonstrated by the proliferation of communities served by an air connection

since the liberalisation of the European air services. However, in some situations, there may be

routes which are not economically viable, and hence remain underserviced by market

operators, such as those in remote or outermost regions, including islands. These are

nevertheless critical for residents’ connectivity and regional development, especially where

alternatives to air transport are not available and limited. In such situations, Member States can

impose air transport public service obligations (PSOs) to off-set the geographical

disadvantages of such regions and to ensure a minimum standard of connectivity of the local

population. The Commission continues assisting Member States in designing PSOs, to improve

connectivity and social cohesion throughout their territory, in underserved, remote and insular

regions, in particular in the low season.

Simultaneously, to prepare the air-services sector for the future, the Commission is reviewing

the Air Services Regulation369. The initiative aims to shape a more resilient, competitive and

more sustainable EU air services industry, while maintaining the highest levels of air safety

and continuing to ensure connectivity, including in the most remote parts of the EU and the

outermost regions, to protect consumer interests, and to preserve high quality employment. The

European Common Aviation Area with the Western Balkans and Common Aviation Area

agreements with Georgia, Moldova and Ukraine aim to extend the European aviation model to

candidate countries370

In addition to the internal EU aviation market which is fully liberalised, Air Services

Agreements (ASAs) are the important regulatory tools which underpin direct and diversified

external access to European destinations. These agreements contribute to more balanced

tourism flows, including improved geographical and seasonal dispersal, and reinforce

connectivity with key partner countries. They also lead to more connections and greater

affordability for European passengers travelling abroad, thereby contributing to economic

growth and employment in partner countries. Wider market access also enables airlines to adapt

rapidly to geopolitical disruptions by allowing for the rerouting of traffic through alternative

routes and hubs, supporting the resilience of tourism flows. Modern Air Service Agreements

can also contain clauses which promote cooperation between countries and regions in the areas

of, inter alia, environmental protection (including noise), labour law and fair competition,

ensuring that there is a shared understanding in the need for growth to be achieved sustainably.

For these reasons, the Commission, along with Member States, should continue to encourage

efficient, modern agreements that accommodate access and sustainable growth in the broadest

geographical terms.

Maritime

Maritime and inland waterway passenger services, including vital ferry connections and sea

and river cruise tourism, are drivers of Europe’s territorial connectivity and seasonal economic

vitality. Whereas total intra-EU maritime transport accounts by only 0.3% of the total passenger

transport activities (including commuting and non-touristic trips, but not including private

368 Eurostat, Trips by main mode of transport, accessed November 2026. 369 European Parliament and Council of the European Union, Regulation (EC) No 1008/2008 of 24 September

2008 on common rules for the operation of air services in the Community (Recast), Official Journal of the

European Union, October 2008. 370 European Commission, Directorate-General for Mobility and Transport, A Common Aviation Area with the

EU’s neighbours, accessed November 2026.

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cars)371, 1.3% of all the tourism trips of Europeans took place through waterways. This

percentage reach for 42.2% for Malta and 16.2% for Greece372. To further optimise the travel

experience, closer integration of waterborne transport into the wider European multimodal

network, transforming port terminals into modern, efficient passenger hubs that offer seamless

transitions to rail and public transport. This will ensure that Europe’s island, coastal, and river

destinations remain reliably and dynamically connected throughout the entire year.

The EU Ports Strategy recognises the important role that ports play in supporting tourism and

cruise activities in particular for islands and more remote destinations. It thus has developed a

comprehensive roadmap for competitive small and medium-sized ports, in order to support

their development. This includes, identifying their needs among the funding priorities,

promotion of electrification and of security, and promoting connectivity in particular through

the European Maritime Space. Furthermore, it calls on the Member States to support the ports

in these areas especially in improving sustainability and connectivity, support the maritime

cluster and promote a structured cooperation between ports and local industrial clusters.

Another issue that tourists can experience when travelling by leisure boat in the EU – along

canals lakes, coastlines and islands – is the fragmented system for the recognition of

recreational boating licences373. Boater licenses issued by one Member State are not necessarily

recognised by another Member State’s authority which may cause additional complexity and

burden for boaters and businesses. Furthermore, Member States apply differing requirements

for training, testing and recognition of licences depending on vessel size, engine power and

operating area (coastal/inland). Applying UNECE Resolution No. 40 on an International

Certificate for Operators of Pleasure Craft would bring about major simplification in that

regard.

3.3.3 The passenger experience and passenger rights

The adoption of the revision of the Air Passenger Rights374 Regulation and the recent political

agreement on the Omnibus Regulation on enforcement for passenger rights375 strengthen

tourism by making travel more reliable and predictable for visitors. They improve, inter alia,

fare transparency, maintain compensation for delays and cancellations, and improve the

enforcement of passenger rights, giving tourists greater confidence to explore a wider range of

destinations and modes. This supports a more sustainable and dispersed tourism model of

quality across the EU.

The revised Package Travel Directive376 will enhance the protection of travellers, while

reducing burdens for operators and clarifying obligations for package organisers. It addresses

371 European Commission, Directorate-General for Mobility and Transport, Statistical pocketbook 2025,

September 2025. 372 Eurostat, Trips by main mode of transport, accessed November 2026. 373 European Commission, Directorate-General for Mobility and Transport and Panteia, Study to determine the

advantages and drawbacks of a possible mutual recognition of boating licences for recreational boat operators:

Final report, Publications Office of the European Union, November 2025. 374 European Commission, Directorate-General for Mobility and Transport, Air passenger rights, accessed

November 2026. 375 Council of the European Union, Council and Parliament agree on more effective enforcement of passenger

rights, Press release, June 2026. 376 European Parliament and Council of the European Union, Directive (EU) 2026/1024 of 29 April 2026

amending Directive (EU) 2015/2302 to make the protection of travellers more effective and to simplify and clarify

certain aspects of that Directive, Official Journal of the European Union, May 2026.

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problems identified during the COVID-19 health crisis. It is estimated that this gain for

businesses could reach at least EUR 181.4 million per year across the EU. It is now for the

Member States to transpose the amended provisions into their national laws by 29 September

2028, and the Commission will support them in that respect. The new rules will become

applicable on 29 March 2029. In its notice377 of 8 May 2026, the Commission encouraged

package organisers that offer vouchers to travellers to apply the new rules on vouchers on a

voluntary basis already before the transposition of the amendments.

Additionally, updated rules on passenger rights are expected to bring more simplification,

along with increased legal clarity for passengers, regarding in particular the responsibilities of

transport operators, travel agents and tour operators.

The upcoming revision of the Consumer Protection Cooperation (CPC) Regulation378 will

reinforce the public enforcement of consumer rights and contribute to a level-playing field for

businesses in the tourism sector, including through direct EU-level enforcement powers in

specific cases.

Passengers in the EU can find themselves spending hours going through the different

checkpoints at airports, maritime terminals, and transport hubs. The security restrictions and

rules can also vary among Member States. The introduction of new technological solutions can

offer opportunities to improve the overall passenger travel experience.

Facial recognition technology is a tool to modernise airport operations, enabling automated

biometric comparisons to verify passenger identities and streamline their journey through

airports. Such systems may significantly reduce boarding times, avoid fraud, improve

operational performance, and minimise human errors. At the same time, the processing of

biometric data also raises important data protection questions and requires stringent safeguards

and compliance with regulatory requirements stemming from the EU’s data protection

legislation, including the GDPR, to protect individual rights and freedoms.

The deployment of advanced screening technologies at the security checkpoint allowing for

the lifting of liquids, aerosols and gels (LAGs) restrictions379 in airports adopting these

technologies also offers opportunities to improve the overall passenger travel experience. They

can streamline security processes related to liquid restrictions, while maintaining high detection

standards. Their implementation can also contribute to more efficient passenger flows and

improved operational performance at airports. This is why the EU aviation security strategy

encourages investment in modern technologies that strengthen security while facilitating

passenger processing.

Moreover, the travel experience can also be improved by clear information on rules or

restrictions. For example, passengers may face confusion about the rules for travelling with

pets on aircraft, which could lead them to leave their pets at home and reduce the length of

377 European Commission, Guidance clarifying certain EU rules applicable to passengers and tourism as well as

transport operators, including in light of the current reduced supply of jet fuel from the Middle East,

Commission Notice C°(2026)°3172 final, May 2026. 378 Regulation (EU) 2017/2394 of 12 December 2017 on cooperation between national authorities responsible

for the enforcement of consumer protection laws and repealing Regulation (EC) No 2006/2004, p.1, Official

Journal of the European Union, December 2017. 379 European Commission, Directorate-General for Mobility and Transport, Liquids, aerosols and gels, accessed

November 2026.

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their trips, or decide not to travel altogether. Airlines have differing policies on carriage of pets

in the cabin, which are not always clearly communicated, and Member States are also allowing

divergent approaches in terms of what is permitted under safety rules. The Commission is

looking at measures to address this confusion as part of the review of the Air Services

Regulation.380

3.4 Global outreach and branding

The fourth pillar of the Strategy focuses on strengthening the international dimension of EU

tourism policy and Europe’s position as a leading global tourism destination. Over recent years,

the Commission has progressively strengthened the external dimension of EU tourism policy.

Tourism has consequently become an increasingly important component of the EU's external

action, supporting initiatives under the enlargement process, the Global Gateway,

neighbourhood cooperation and strategic partnerships with key partner countries and regions.

At the same time, it creates opportunities for European businesses, promotes European

expertise, and strengthens the visibility and competitiveness of European destinations in global

markets.

Given the inherently international nature of tourism, closer cooperation with partner countries

and international organisations, connectivity and travel facilitation are important for the

competitiveness of European tourism. At the same time, a stronger common positioning of

Europe can increase its visibility in global markets and support more sustainable and balanced

tourism flows.

3.4.1 Strengthening the international dimension of EU tourism policy

The Commission has progressively developed a structured framework for international tourism

cooperation through multilateral organisations, bilateral and regional policy dialogues, and

tourism components embedded in wider external partnerships. These exchanges support policy

cooperation, facilitate business and investment opportunities, including partnerships between

European tourism SMEs and businesses in partner countries, promote European standards and

expertise, and strengthen cooperation on topics of common interest. Tourism can also serve as

an instrument of soft diplomacy, fostering people-to-people contacts, mutual understanding

and dialogue between countries and communities. They also provide an important platform for

promoting the objectives of the present Strategy.

Multilateral cooperation provides an important foundation for international tourism policy

coordination, enabling the exchange of evidence, good practices and policy approaches, as well

as the development of common standards and statistical methodologies. The Commission

cooperates closely with key international organisations, in particular the Organisation for

Economic Co-operation and Development (OECD) and the United Nations, notably through

UN Tourism.

Within the OECD, the Commission actively participates in the Tourism Committee, its Bureau

and the Working Party on Tourism Statistics. Through its contribution agreements with the

380 European Commission, Directorate-General for Mobility and Transport, Commission takes step to update air

service rules, accessed November 2026.

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OECD, it also supports analytical work, evidence-based policymaking, tourism statistics and

international policy benchmarking.

Cooperation with UN Tourism is underpinned by a Memorandum of Understanding signed in

2012, which will be modernised through a Cooperation Framework (Administrative

Arrangement) following the publication of the Strategy. The framework provides a structured

basis for cooperation on areas of common interest, including international tourism policy,

competitiveness, skills, data and innovation, resilience and crisis preparedness, integrated

destination management, sustainable and regenerative tourism, and connectivity, while

facilitating exchanges of expertise, analytical work and participation in each other's activities.

The EU also participates as a full member in the G20 Tourism Working Group, where it

contributes to international discussions on sustainable, resilient and competitive tourism and to

the preparation of the G20 Tourism Ministers’ Declaration.

Cooperation with the International Maritime Organization ensures that global standards for

maritime transport, including search and rescue coordination, passenger ship safety,

environmental protection and maritime decarbonisation, support sustainable coastal, island and

cruise tourism in Europe while maintaining high safety and operational standards worldwide.

As regards air transport, cooperation with the International Civil Aviation Organization is

crucial, particularly for supporting sustainable and passenger-centric air transport and

facilitating travel, including through work on border procedures, customs and immigration.

Main outcomes of the G20 Tourism Working Group under the Brazilian Presidency

(2024)

Building on the Goa Roadmap for Tourism as a Vehicle for Achieving the Sustainable

Development Goals381, adopted under the Indian G20 Presidency in 2023, the Brazilian

Presidency continued work across five priority areas: green tourism, digitalisation, skills,

tourism micro, small and medium-sized enterprises, and destination management.

At the G20 Tourism Ministers’ Meeting in Belém in September 2024, Ministers adopted the

Belém Declaration382, reaffirming tourism’s contribution to sustainable, resilient and

inclusive development and setting out common orientations in the following areas:

• Sustainability measurement: support for the implementation of the United Nations

Statistical Framework for Measuring the Sustainability of Tourism (SF-MST), which

provides an internationally agreed framework for measuring tourism’s economic,

social and environmental dimensions383.

381 International Labour Organization, G20 Goa Roadmap for Tourism as a Vehicle for Achieving the

Sustainable Development Goals, June 2023. 382 G20 Tourism Ministers, Bélem Declaration, September 2024. 383 World Tourism Organization (UNWTO), Statistical Framework for Measuring the Sustainability of Tourism

(SF-MST): Final Draft, prepared for the United Nations Statistical Commission, February 2024.

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• Knowledge sharing and peer learning: continued development of the G20 Tourism

and SDGs Dashboard384, whose collection grew to 170 case studies, and recognition

of its potential to connect stakeholders and destinations facing similar challenges385.

• Skills development: continued investment in professional training and lifelong

learning, including inclusive opportunities for young people, women, persons in

vulnerable situations, local communities and Indigenous Peoples, as appropriate.

• Tourism MSMEs and destination management: support for green and digital

transitions, access to financing and expertise, public-private partnerships and

governance models that promote sustainable destination management and

responsible visitor behaviour.

• Tourism financing: identification of four priority areas for financial support: climate

resilience and nature-positive tourism, social development, new tourism products in

local communities, and shared tourism infrastructure386.

These outcomes illustrate the growing convergence between EU priorities and international

tourism policy discussions, particularly on sustainability measurement, skills, support for

SMEs, integrated destination management and resilience.

Tourism also forms part of the EU's enlargement policy. It is addressed in the Stabilisation

and Association Agreement Subcommittees under Chapter 20 (Industrial Policy and SMEs).

The Growth Plan for the Western Balkans387 also identifies tourism as a priority area for

regional cooperation, in line with the Common Regional Market Action Plan (2025-2028)388

under the Berlin Process. The Commission supports these efforts through cooperation with the

Regional Cooperation Council and Western Balkan partners, including the Tourism Expert

Group. The Commission also supports Ukraine's recovery and European integration, including

through its cooperation in the establishment of the Tourism Alliance for Ukraine. As part of

these efforts, Ukraine has also been invited to participate as an observer in the Commission's

Tourism Advisory Committee, alongside other enlargement partners, further strengthening

policy dialogue and cooperation with the EU389.

384 World Tourism Organization (UNWTO), G20 Tourism and SDGs Dashboard, Tourism for SDGs Platform,

accessed November 2026. 385 G20 Tourism Working Group, Report Delivery 1C – Promote and Survey Best Practices on the Progress

towards the Sustainable Development Goals, Brazilian G20 Presidency, 2024, accessed November 2026. 386 G20 Tourism Working Group, Report Delivery 3 – Presidency Report – Funding Lines and Priority Areas for

Investment in Tourism, Brazilian G20 Presidency, 2024, accessed November 2026. 387 European Commission, Directorate-General for Enlargement and Eastern Neighbourhood, Growth Plan for

the Western Balkans, accessed November 2026. 388 European Commission, Directorate-General for Enlargement and Eastern Neighbourhood, Common

Regional Market, accessed November 2026. 389 European Commission, Register of Commission Expert Groups and Other Similar Entities, Advisory

Committee on Tourism, Expert Group No. 1351, accessed November 2026.

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Example: Tourism Alliance for Ukraine390

Launched at the Ukraine Recovery Conference in Rome in July 2025, the Tourism Alliance

for Ukraine is an international platform bringing together public and private partners around

the recovery and long-term development of Ukraine's tourism ecosystem. It aims to

coordinate international support and expertise and support Ukraine's tourism reforms and

progressive alignment with the EU. Its focus areas include digitalisation and market

formalisation, alignment with EU frameworks and legislation, and capacity-building for

local actors. The Alliance also seeks to position tourism as a contributor to local economic

resilience, sustainable reconstruction and Ukraine's path towards EU membership.

Dedicated bilateral and regional tourism dialogues complement these broader frameworks

by addressing shared priorities with key partner countries and regions. They can also support

people-to-people contacts and identify practical opportunities for cooperation, including,

where appropriate, the development of cross-border tourism routes.

• Following the first EU-Central Asia Tourism Forum held in Tashkent in 2025,

tourism has become an increasingly important component of the EU-Central Asia

Partnership. The Forum supports the implementation of the Joint Roadmap for

Deepening Ties between the EU and Central Asia and promotes sustainable destination

management, connectivity, investment, skills development and business cooperation.

• The first EU-Japan Tourism Dialogue, launched in Tokyo in 2026 back-to-back with

the EU-Japan Transport Dialogue, established a structured framework for cooperation

on sustainable tourism, multimodal connectivity, destination management and

innovation, supporting the implementation of the EU-Japan Strategic Partnership

Agreement and encouraging balanced tourism flows between both partners.

• Under the EU-Greenland Partnership and the EU's Arctic policy, the Commission

is developing cooperation on sustainable tourism as part of broader efforts to support

economic diversification, green and digital transitions and resilience. This illustrates

how tourism is increasingly integrated into wider EU external partnerships and

contributes to broader EU policy objectives in the Arctic.

• Building on the Strategic Partnership with the Gulf Cooperation Council, the Strategy

envisages the establishment of an EU-GCC Tourism Forum to strengthen cooperation

on sustainable tourism, connectivity, investment and economic diversification, while

creating new opportunities for European tourism businesses.

• The Strategy also supports the launch of an EU-India Tourism Dialogue, recognising

India as one of the world's fastest-growing outbound tourism markets and an

increasingly important strategic partner for the European Union. The dialogue will

strengthen cooperation on sustainable tourism, connectivity, investment and tourism

services within the broader EU-India Comprehensive Strategic Agenda.

Beyond dedicated tourism dialogues, existing EU instruments already support practical tourism

cooperation with partner countries at regional and local level. The International Urban and

Regional Cooperation (IURC) programme connects EU cities and regions with counterparts

worldwideto exchange knowledge and develop joint solutions to shared urban and regional

challenges. Sustainable tourism has emerged as one area of cooperation, linking tourism with

390 State Agency for Tourism Development of Ukraine, Tourism Alliance for Ukraine, accessed November

2026.

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wider territorial priorities such as climate resilience, cultural heritage, local economic

development and community engagement391.

Example: International Urban and Regional Cooperation on sustainable tourism

The IURC Sustainable Smart Tourism Community of Practice brings together cities and

regions from Europe and Asia to move from peer learning towards practical cooperation on

sustainable tourism. Prato and Coimbra from the EU cooperate with Gangtok, Seberang

Perai, Jeonju, Melaka and Leh in Asia, through technical exchanges, study visits and the

development of pilot initiatives adapted to local needs. In India, cooperation with Gangtok

and Leh focuses on sustainable and climate-resilient tourism, including heritage

management, tourism flows and community-based tourism development. The cooperation

illustrates how EU experience at city and regional level can be shared internationally while

allowing European partners to learn from approaches developed in partner countries392.

Broader EU external investment instruments can also support sustainable tourism development

in partner countries, including through Global Gateway investments. International

engagement on tourism with EU partner countries should be framed as part of a development

agenda that strengthens simultaneously global connectivity and local economies, improving

the quality and delivery of local services, including through sustainable and efficient transport

solutions and local finance. Tourism growth often concentrates in cities, coastal urban areas

and heritage centres, and increases demand for water, sanitation, waste management,

sustainable mobility, public spaces and climate-resilient infrastructure. Tourism interventions

should therefore be systematically linked to investments in urban service provision, integrated

land-use and sustainable mobility planning, as well as stronger local governance, ensuring that

tourism growth generates tangible benefits for both residents and visitors. By linking

destination attractiveness to improved urban services and local government capacity, the EU

can promote its distinctive model of sustainable tourism that minimises externalities,

strengthens local value creation and aligns with broader development and Global Gateway

objectives.

3.4.2 International cooperation on tourism skills

Tourism skills are becoming an increasingly important component of the EU's international

cooperation. Supporting skills development contributes to more resilient tourism ecosystems,

facilitates knowledge exchange and workforce mobility, and helps partner countries strengthen

their tourism sectors while addressing labour shortages and skills needs within the European

Union.

The Commission already supports international cooperation on tourism skills through a range

of instruments. These include projects managed by the European Training Foundation,

Erasmus+ and other EU initiatives, which promote skills development, qualifications,

apprenticeships, policy reforms and capacity building in partner countries. These initiatives

391 International Urban and Regional Cooperation (IURC), International Urban and Regional Cooperation – A

Programme of the European Union, accessed November 2026. 392 International Urban and Regional Cooperation (IURC), IURC EU, Asia & Australasia: Cities and Regions

Move from Cooperation to Implementation in 2026, April 2026.

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also facilitate exchanges of expertise between tourism stakeholders and contribute to the

international dimension of the Pact for Skills393.

More broadly, the international dimension of Erasmus+ and initiatives such as Study in Europe

strengthen Europe’s attractiveness as a destination for education, research and talent.394 Beyond

their educational objectives, these initiatives also contribute to people-to-people exchanges,

enhance Europe’s international visibility and generate additional tourism flows associated with

student mobility, academic exchanges and visiting friends and relatives travel.

The EU Talent Pool395 is another important element of the EU's efforts to address labour

shortages while facilitating legal pathways for migration. It is the first EU-wide platform

enabling employers in participating Member States to recruit third-country jobseekers residing

outside the European Union. Jobseekers will be able to register their skills, qualifications, work

experience and language proficiency, while employers will gain access to a broader pool of

candidates for occupations facing labour shortages at all skill levels. Participation by Member

States is voluntary.

The Talent Pool also supports the implementation of Talent Partnerships396, which aim to

better match the skills developed in partner countries with labour market needs in the European

Union.397 Jobseekers who have acquired skills through a Talent Partnership will be able to

indicate this in their profiles on the EU Talent Pool platform. Tourism and hospitality are

among the priority sectors in several Talent Partnerships currently being developed with

Morocco, Tunisia, Egypt, Pakistan and Bangladesh, creating opportunities to strengthen skills

cooperation while supporting legal mobility pathways.

The Strategy further strengthens the international dimension of tourism skills by promoting

cooperation with partner countries and making full use of existing EU instruments and

partnerships.

Example: EU Talent Partnership with Morocco

Morocco is one of the North African partner countries actively involved in the Talent

Partnership programme with the European Union, identifying tourism as priority sectors. The

Partnership helps address these issues by supporting fair recruitment, skills recognition, and

mobility in line with decent work standards. It aims to promote legal, safe and orderly migration

channels, while helping to address the skills needs of European labour markets.

3.4.3 Strengthening international connectivity

International engagement in tourism is closely linked to connectivity and mobility, and to air

connectivity in particular. Direct and diversified connections with key international markets

393 European Commission, Directorate-General for Employment, Social Affairs and Inclusion, Pact for Skills,

accessed November 2026 394 European Commission, Directorate-General for Education, Youth, Sport and Culture, Study in Europe,

accessed November 2026. 395 Regulation (EU) 2026/1047 of 29 April 2026 establishing an EU Talent Pool, Official Journal of the

European Union, May 2026. 396 European Commission, Directorate-General for Migration and Home Affairs, Talent Partnerships, May 2025.

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are important for the competitiveness and accessibility of European destinations, while also

supporting tourism and economic development in partner countries.

By improving direct and diversified access to European destinations, aviation agreements

contribute to more balanced tourism flows, including improved geographical and seasonal

dispersal, while reinforcing connectivity with key partner countries. They also provide more

connections and affordability for both European and non-European travellers, while

contributing to economic growth and employment on both sides. Wider access to different

markets also contributes to the resilience of tourism connectivity by enabling European airlines

to adapt more easily to changing market conditions and external disruptions, while establishing

a healthy level playing field with their competitors.

For these reasons, the Commission will continue promoting agreements that strike the right

balance between granting a diversified and affordable access to travellers and, at the same time,

fostering beneficial competition among carriers.

3.4.4 Facilitating travel to Europe through modern border and visa management

The attractiveness and competitiveness of Europe as a tourism destination depend not only on

air connectivity and the quality of its tourism offer, but also on the ease, predictability and

security with which international travellers can enter the European Union. Visa policy, border

management and travel facilitation therefore constitute important enabling conditions for

tourism, business travel and people-to-people exchanges, while fully respecting the Union's

security objectives and the integrity of the Schengen area398.

Stakeholder consultations carried out in preparation of the Strategy confirmed the importance

of efficient and predictable entry procedures for Europe's tourism competitiveness.

Stakeholders highlighted that lengthy visa procedures, limited appointment availability and

uncertainty regarding processing times may discourage travel, particularly from rapidly

growing long-haul source markets. They also stressed that visa complexity may affect business

travel, investment missions and professional exchanges, while the successful implementation

of the Entry/Exit System (EES) will be important for maintaining a positive visitor experience.

Although stakeholders recognised the long-term benefits of digital border management, they

emphasised that operational challenges during the transition period, including extended waiting

times at certain external border crossing points, could temporarily affect the attractiveness of

European destinations if not adequately addressed399.

The EU operates one of the world's largest common travel areas. The list of countries whose

citizens benefit from visa-free travel to the EU has steadily grown, now including 64 countries

and territories, more than any other similar travel destinations. The Schengen area enables

seamless travel across participating countries through the absence of internal border controls,

while a common visa policy provides harmonised rules for short-stay travel by nationals

requiring a visa. Together, these arrangements contribute to the functioning of the internal

398 European Commission, Directorate-General for Migration and Home Affairs, Smart Borders, April 2026. 399 Stakeholder consultations carried out in preparation of the EU Sustainable Tourism Strategy, including

contributions from TUI Group, ETOA, WTTC and other tourism stakeholders (2025-2026). Internal consultation

material.

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market, facilitate tourism and business travel, and enhance the international attractiveness of

Europe as a destination400.

The Commission has progressively modernised the EU visa framework to improve both

efficiency and user experience. The EU Visa Policy Strategy places particular emphasis on

the digitalisation of visa procedures, the wider use of multiple-entry visas for trusted travellers

and measures to facilitate legitimate travel while maintaining high security standards401. These

developments form part of a broader approach that seeks to combine secure external border

management with facilitation for bona fide travellers.

The European Travel Information and Authorisation System (ETIAS), once operational,

will enable advance security and migration risk screening before travellers arrive at the EU's

external borders402. It will introduce a pre-travel authorisation requirement for visa-exempt

third-country nationals, aligning the EU with similar systems already operated by several

international partners. By enabling advance risk assessment while facilitating the processing of

low-risk travellers, ETIAS is expected to contribute to both security and a more predictable

travel experience.

Taken together, these developments illustrate the broader digital transformation of the

management of the EU's external borders. When fully implemented, the combination of

modernised visa procedures, ETIAS and the interoperability architecture is expected to

strengthen security while supporting more efficient and seamless travel to Europe. For the

tourism ecosystem, reliable, transparent and user-friendly entry procedures contribute to

maintaining Europe's attractiveness as a global destination, particularly in increasingly

competitive long-haul markets.

3.4.5 Destination Europe

Beyond connectivity and policy cooperation, strengthening Europe's position as the world’s

leading tourism destination also requires a coherent international positioning. Destination

Europe seeks to articulate Europe's shared values and strengths by positioning Europe as a

"destination of destinations". It provides a common strategic framework that complements

national, regional and local destination brands, showcasing Europe's diversity and supporting

more balanced tourism flows.

The concept of Destination Europe builds on the Commission's long-standing cooperation with

the European Travel Commission (ETC). Since 2012, ETC has received successive EU co-

funded action grants supporting promotional activities to strengthen the image and profile of

Europe as a collection of sustainable and high-quality destinations. Over time, this cooperation

has progressively evolved from joint marketing campaigns towards a broader approach

combining market intelligence, business-to-business promotion, digital communication and

400 Regulation (EC) No 810/2009 of 13 July 2009 establishing a Community Code on Visas (Visa Code), p. 1,

Official Journal of the European Union, September 2009; European Parliament and Council of the European

Union, Regulation (EU) 2016/399 of 9 March 2016 on a Union Code on the Rules Governing the Movement of

Persons across Borders (Schengen Borders Code), p. 1, Official Journal of the European Union, March 2016. 401 European Commission, Communication from the Commission to the European Parliament and the Council on

EU Visa Policy Strategy, COM°(2026)°43 final, January 2026. 402 Regulation (EU) 2018/1240 of 12 September 2018 establishing a European Travel Information and

Authorisation System (ETIAS) and amending Regulations (EU) No 1077/2011, (EU) No 515/2014, (EU)

2016/399, (EU) 2016/1624 and (EU) 2017/2226, p. 1, Official Journal of the European Union, September 2018.

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common promotional tools, including the development of the VisitEurope.com portal403 and

Joint Promotion Platform.404 More recently, activities have increasingly focused on promoting

sustainable tourism, lesser-known destinations and year-round travel.

Market intelligence confirms both Europe's continued appeal and the importance of a clear

international positioning. In early 2026, 42% of surveyed long-haul travellers across seven key

overseas markets were considering a trip to Europe during the year, while safety was the

leading criterion for selecting a European destination, cited by 51% of respondents. Culture

and history remained the most popular planned activities, alongside gastronomy, city breaks

and nature-based experiences.405

Building on this experience, the Strategy expands the concept from a promotional initiative

towards a broader policy framework, integrating branding with destination management,

sustainability, connectivity and international partnerships.

Consultation activities undertaken in preparation of the Strategy, complemented by the

Branding Destination Europe workshop of January 2026, demonstrated broad support for

strengthening Europe's international positioning through a more coherent European narrative.

They also highlighted the importance of ensuring that any common approach remains

voluntary, complements existing national, regional and local destination brands, and supports

broader policy objectives, including more sustainable and balanced tourism. Taken together,

these findings provide the analytical basis for the progressive development of the Destination

Europe framework.

Branding Destination Europe workshop: key conclusions

In January 2026, the Commission convened around 125 representatives from Member States,

national tourism organisations, destinations, industry, international organisations and

branding experts to discuss the future of Destination Europe. The workshop combined

keynote presentations, panel discussions and interactive breakout sessions on governance,

implementation and branding concepts.

The workshop highlighted broad convergence around the following principles:

• Destination Europe should provide a shared European narrative, complementing

national, regional and local destination brands.

• Implementation should remain voluntary, supported by appropriate governance

arrangements, common tools and close cooperation between the Commission,

Member States and the European Travel Commission.

• The framework should build on shared European values, including sustainability,

quality, cultural heritage and diversity.

• The framework should support more balanced tourism, including the promotion of

lesser-known destinations, year-round travel and longer stays.

403 European Travel Commission, Visit Europe: The Official Travel Portal of Europe, accessed November 2026. 404 European Travel Commission (ETC), Joint Promotion Platform, accessed November 2026 405 European Travel Commission (ETC) and Eurail B.V., Long-Haul Travel Barometer 1/2026, February 2026.

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• Destination Europe should contribute to strengthening Europe's international

visibility and competitiveness while respecting the diversity of European destinations

and the principle of subsidiarity.

The workshop also highlighted that Destination Europe should be developed progressively

through pilot actions, practical implementation tools and continued cooperation with Member

States and the European Travel Commission, allowing the framework to evolve over time while

respecting national competences and destination diversity. The framework can particularly

benefit destinations and tourism businesses with high-quality tourism offers but more limited

capacity to reach international markets independently, while complementing rather than

replacing established national and regional brands.

Against this background, joint European promotion can serve not only to strengthen Europe's

visibility in global markets but also to support a more balanced distribution of tourism demand

across destinations and seasons. Promoting lesser-known destinations, year-round experiences

and longer stays can help spread the economic benefits of tourism more widely and reduce

pressure on mature destinations and peak periods.

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Chapter 4. Governance and review

Questions of (good) governance come natural for a diverse industrial ecosystem like tourism,

characterised by a multitude of private and public stakeholders that range from very small to

very large, from local to multi-national. And indeed, suggestions to improve cooperation

regularly emerge from consultations and feature in policy positions (see Chapter 2). Some

Member States have developed carefully calibrated national approaches, including regulatory,

spanning all administrative levels and providing backbone management infrastructure and

services. This Strategy has no intention to touch these structures. But, in line with calls and

expectations from the sector, it proposes to streamline information and cooperation flows for

issues where cooperation at EU level has strong added value, e.g. on skills, data, simplification,

management tools or external promotion.

4.1 EU Tourism Alliance

Tourism is inherently place-based, rooted in local assets and identities, while simultaneously

operating across regional, cross-border and macro-regional traveller flows. In Europe, this

multi-layered reality should be its defining strength, since it combines local authenticity with

the scale and diversity of an integrated continental market. But making full use of this strength

requires a constantly adjusted and delicate balancing of decision-making, public and private,

and between local, regional, national and EU levels. European tourism needs a credible and

representative EU cooperation structure to set priorities, align work on innovation and

investment, and to support the scaling up of success stories as a basis for long-term

competitiveness.

Today, tourism remains structurally under-coordinated in Europe, fragmented across multiple

fora and short-term initiatives that lack strategic direction, continuity and scale. As a result,

innovation, investment and policy influence are dispersed. This fragmentation undermines the

sector’s resilience and competitiveness. It limits the ability of destinations – especially smaller

ones – to manage risks and transitions effectively and undermines coherence with EU-wide

objectives such as the Clean Industrial Deal, the Competitiveness Compass and the Digital

Decade.

Three interlinked challenges must be addressed at European level:

1. The first is to effectively coordinate inputs from Member States and experts across

policy, technical and territorial domains and to steer joint action from innovation to

scaling up and roll out. This requires effective information flows, priority setting, and

sign-off on policy recommendations.

2. The second is to ensure strong and structured partnerships between the public and

the private sector. Without this, smart destination management cannot have a

meaningful impact, given the central role of businesses in shaping demand, data,

services and innovation.

3. The third is to better connect tourism with other sectoral policies that influence it,

ensuring that the interests of the tourism ecosystem are duly considered, while

providing stakeholders with clarity on the rules and conditions affecting their activities.

These challenges call for public and private actors in the EU tourism ecosystem to establish a

jointly owned, credible and transparent EU cooperation framework, capable of articulating

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common priorities, integrating existing initiatives and providing continuity beyond political

and funding cycles. This vision is complementary to local, regional and national

responsibilities in and for tourism. It is aimed at creating structural value added through

developing synergies and pragmatic, long-term operational perspectives. It is anchored in

strong Member State endorsement.406

The objective is to create a structured public–private partnership driving and overseeing

implementation of the EU Tourism Strategy and representing the shared interests of the tourism

sector. The principal added value of the Alliance is therefore organisational rather than directly

quantifiable in economic terms: reducing fragmentation, creating continuity between

individual initiatives and enabling solutions developed in one part of the tourism ecosystem to

be shared, adapted and scaled up elsewhere. Its direct beneficiaries will be the public and

private stakeholders participating in EU tourism cooperation, while stronger coordination

should support more coherent implementation of the Strategy for the wider ecosystem.407

In practice, the work of the Alliance will focus on delivering on common priorities for the EU

tourism ecosystem and ensuring coherence between them, transparently and in partnership. The

following examples may serve as illustration of the expected operational flows and policy

impact:

Example:

EU Strategy for Sustainable Tourism – priority action area EU Tourism Data Space

- The EU Tourism Data Space project governance ensures routine operations, EU and MS co-

funded – including, possibly, on basis of a regulatory foundation (EDIC, regulation, other).

- The EU Tourism Alliance ensures policy oversight and gives policy steer – with a focus on

integration of the Data Space with/into other work strands (EU Model of Tourism

Management, Balanced Tourism Recommendation and toolbox, EU Tourism Academy, AI,

innovation, simplification, ...) and on any necessary developments of the Data Space in a

medium to long term perspective.

- The EU Tourism Alliance also helps promote the Data Space within the wider potential user

community (via EU Tourism Community) and seeks feedback on how well Data Space design

and operations meet user needs, including testing for/of new functionalities and developments.

4.2 EU Tourism Platform

Effective cooperation across the tourism ecosystem requires not only appropriate governance

structures, but also accessible tools through which information, knowledge and opportunities

can circulate between stakeholders. The EU Tourism Platform408 provides the digital

406 European Commission, Report from the Commission to the Council on the Implementation of the European

Tourism Agenda 2030, COM°(2025)°763 final, December 2025. 407 OECD, OECD Tourism Trends and Policies 2026, Chapter 2, “Tourism policies, priorities and governance”,

OECD Publishing, Paris, July 2026. 408 European Commission, Directorate-General for Internal Market, Industry, Entrepreneurship and SMEs, EU

Tourism Platform, accessed November 2026.

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cooperation infrastructure supporting the implementation of the Strategy and the work of the

EU Tourism Alliance.

The Platform serves as a central entry point for EU-level tourism information and

cooperation, bringing together relevant policy developments, tools, knowledge and funding

opportunities. It facilitates access to EU initiatives and resources, supports exchanges between

public authorities, destinations, businesses, academia and other tourism stakeholders, and

provides pathways for stakeholders to contribute to relevant EU tourism work. By bringing

these resources together in one place, it also helps improve the visibility and accessibility of

the support available to the tourism ecosystem.

The Platform will progressively evolve in line with the needs of the sector and the

implementation of the Strategy. New functionalities will facilitate more practical forms of

cooperation between tourism stakeholders, including tools enabling destinations facing

similar challenges to identify each other, exchange experience and develop common solutions.

It will also provide access to knowledge and resources developed under the Strategy, including

a repository of crisis management tools and practices, and progressively connect

stakeholders with relevant cooperation and funding opportunities.

The Platform also hosts the EU Tourism Forum, providing an open space for stakeholders

across the tourism ecosystem to exchange experience and good practices, contribute ideas and

provide feedback. In this way, it complements the representative and strategic role of the EU

Tourism Alliance by enabling broader and continuous engagement across the European tourism

ecosystem and providing a channel between the Alliance and the wider tourism community.

4.3 Review and reporting

Progress – and any lack of progress – in implementation of the Strategy will be regularly

monitored by the EU Tourism Alliance. To that effect, the Alliance will be invited to agree on

a limited series of indicators. This assessment will integrate reporting on the Agenda 2030 and

address relevant positions of the European Parliament, the Council, the Committee of the

Regions and the European Economic and Social Committee. The monitoring process should

identify any need for readjusting and further developing measures under the strategy or for

adding new actions, to be subject to an assessment of feasibility by the Commission. On the

basis of its regular monitoring, the Commission, working closely with the Alliance, could

consider any need for strengthening governance and delivery mechanisms, including

legislative, under Article 195 TFEU.