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Journal of Policy Research in Tourism,
Leisure and Events
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Effects of the implementation of
tourism excellence plans (19922006)
in Spain. The case of the Catalan coast
Lorena Beas Secall
a
a
School of Tourism and Leisure, Rovira i Virgili University, Spain
Version of record first published: 13 Dec 2011.
To cite this article: Lorena Beas Secall (2012): Effects of the implementation of tourism excellence
plans (19922006) in Spain. The case of the Catalan coast, Journal of Policy Research in Tourism,
Leisure and Events, 4:1, 84-104
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CASE STUDY
Effects of the implementation of tourism excellence plans
(19922006) in Spain. The case of the Catalan coast
Lorena Beas Secall*
School of Tourism and Leisure, Rovira i Virgili University, Spain
(Received March 2011; nal version received October 2011)
The conguration of the Catalan coast as a predominantly tourist area has been marked
by a process of development starting in the 1960s which has gone through different
stages. As a result of the changes in demand and the uctuations in the markets
since the end of the 1980s, the administration has been forced to plan and establish
the main directives for the redevelopment of tourist activity. One of the most
relevant tourism policy initiatives implemented in Spain has been the tourism
excellence plans, which focus on improving the quality and the image of local
destinations. This tool has been broadly implemented in the municipalities on the
Catalan coast, where in the 19982006 period, seven destinations have made use of
it. The application of the Delphi method is considered in order to analyse the
functioning and the impact of these plans on the destinations of the Catalan coast as
well as the effects on its tourism dynamics. The main result of this research is that
the municipalities implementing the plan have timidly incorporated some initiatives
with the aim of revitalising and giving a new strategic vision to the destination.
Keywords: Spanish tourism policy; restructuring destinations; Catalan coastal
tourism; tourism excellence plans; evaluation; Delphi method
Resumen
La conguracin de la costa catalana como rea predominantemente turstica ha
estado marcada por un proceso de desarrollo que comenz en los aos 60 del
siglo pasado y que ha pasado por diferentes etapas. Como resultado de los
cambios en la demanda y las uctuaciones en los mercados, desde nales de la
dcada de 1980, la Administracin se ha visto forzada a planicar y establecer las
directivas principales para el nuevo desarrollo de la actividad turstica. Una de las
iniciativas ms relevantes en poltica turstica implantada en Espaa han sido los
planes de excelencia turstica, que se concentra en mejorar la calidad y la imagen
de los destinos locales. Esta herramienta ha sido ampliamente implantada en los
municipios de la costa catalana, donde en el periodo de 19982006, siete destinos
lo han utilizado. Se ha aplicado el mtodo Delphi para analizar el funcionamiento
y el impacto de estos planes en los destinos de la costa catalana as como los
efectos en la dinmica turstica. El principal resultado de esta investigacin es que
los municipios que han implantado el plan han incorporado tmidamente algunas
iniciativas con el objetivo de revitalizar y dar una nueva visin estratgica al destino.
ISSN 1940-7963 print/ISSN 1940-7971 online
2012 Taylor & Francis
http://dx.doi.org/10.1080/19407963.2011.642875
http://www.tandfonline.com
*Email: lorena.beas@urv.cat
This research is part of the project: Innovacin territorial y modelos de desarrollo en destinos tur-
sticos litorales. Anlisis a diferentes escalas espaciales (INNOVATUR). Direccin General de
Investigacin y Gestin del Plan Nacional I+D+I. Ministerio de Ciencia e Innovacin. Code:
CSO2008-01699/GEOG. Principal researcher: Dr. Salvador Anton Clav. Duration: 20092011.
Journal of Policy Research in Tourism, Leisure & Events
Vol. 4, No. 1, March 2012, 84104
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Palabras claves: poltica turstica espaola; reestructuracin de destinos; turismo
en la costa Catalana; planes de excelencia turstica; mtodo Delphi
Rsum
La conguration de la cte catalane en une zone essentiellement touristique a t
marque par un processus de dveloppement commenc dans les annes 1960, et
qui a suivi diffrentes tapes. Depuis la n des annes 1980, la suite des
changements de la demande et des uctuations des marchs, ladministration a
t force de planier et dtablir les principales directives pour le
redveloppement de lactivit touristique. Lune des initiatives de politique
touristique les plus pertinentes mise en uvre en Espagne est celle des Plans
dExcellence Touristiques qui se concentrent sur lamlioration de la qualit et
de limage des destinations locales. Cet outil a t largement mis en uvre dans
les municipalits de la cte catalane, o, entre 1998 2006, sept destinations
lont utilis. On envisage lapplication de la mthode Delphi an danalyser le
fonctionnement et limpact de ces plans sur les destinations de la cte catalane,
ainsi que les effets sur leurs dynamiques touristiques. Le principal rsultat de
cette recherche est que les municipalits ayant mis en place ce plan ont
timidement incorpor des initiatives ayant pour objectif de revitaliser et de
donner une nouvelle vision stratgique leur destination.
Mots cls: Politique touristique espagnole; restructuration des destinations;
tourisme ctier catalan; Plans dExcellence Touristique; valuation; mthode
Delphi

, Catalan ,
,,,

,
Catalan , 1998 2006
Catalan
,

,
: ; ; Catalan ;
; ;
Introduction
The traditional Spanish and in particular the Catalan sun, sea and sand model of
tourism, has undergone a period of redenition since the end of the 1980s. Its orien-
tation towards sun, sea and sand tourism, the degree of saturation reached in a mass
tourism environment together with the decient infrastructures and services inherited
from poorly controlled development are conditions that do not respond to patterns con-
sumption of todays tourism demand. This situation has led the administration to come
up with a series of tourism policy and management instruments that act as the starting
point for the formulation of strategies and actions aimed at renewing and giving tourism
spaces greater complexity and diversication.
In order to understand these transformations, this research is based on two interpret-
ative models, Butlers (1980) lifecycle of tourist destinations and Agarwals (2002)
restructuring theory. In a situation of the transformation of the sector, both theories
Journal of Policy Research in Tourism, Leisure and Events 85
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recognise the need for destinations to direct a whole series of strategies and actions,
identied by several authors in rst-generation European destinations (European Atlan-
tic) and later in second-generation tourist spaces (European Mediterranean).
In this context, from the 1990s up until the rst decade of the new millennium,
tourism excellence plans became one of the main axes of Spanish policy on tourism
as regards managing destinations. In fact, the administration (Consultur, 2000) and
authors such as Ivars (2002), Anton Clav (2004) and Brunet, Almeida, Coll and
Montesern (2005) recognise the important role played by these instruments.
Due to the above, the main aim of this article is to analyse as a case study the value
of excellence plans in the process of reformulating the traditional Catalan sun, sea and
sand model of tourism and also to contribute a new methodology to its analysis and
assessment, the Delphi method, which will serve to verify the effectiveness of the
plans as a mechanism capable of revitalising destinations.
Tourism excellence plans as a tool for the restructuring of coastal tourist
destinations
Several authors have dened explanatory models as to the behaviour and evolution of
tourist destinations. Miossec (1977), Chadefaud (1987), Butler (1980), Smith (1992)
and the authors involved in the compilations made by Butler (2006a, 2006b) enable under-
standing destinations as dynamic spaces that are continuously transforming, that undergo a
stage of creation, another of development, nishing in a period of stagnation or con-
solidation, which may end up in the total decline of the destination or its rejuvenation.
To this end, sun, sea and sand resorts have put forward several strategies to over-
come the stagnation stage and adapt to the new trends of production and consumption
which Agarwal (2002) identies and contextualises on the basis of the theory of econ-
omic restructuration.
In the European context, much interpretative literature exists regarding the processes
of reconversion aimed at sun, sea and sand destinations with the purpose of avoiding
decline. The rst examples of transformation are found on European Atlantic coastlines
such as those of the south of the UK (Torbay, Cornwall, Weymouth, etc.), where
Agarwal (1997, 1999) analyses how the British government in the early 1980s,
through the British Tourist Board, encouraged the local administration and the private
sector to develop rejuvenation measures, such as the Tourism Development Action
Plans (TDAPs) and Local Economic Initiatives (LEIs). The main goals of these initiat-
ives were to regenerate the sector in order to be able to compete in tourism on a national
and on an international level, to boost employment opportunities and to improve leisure
facilities. But, despite the fact that during their implementation problems were observed
related with the lack of cooperation between the publicprivate stakeholders and the
limitation of economic resources, it has been considered as a useful tool to reposition
destinations. Also, on the Isle of Man, Cooper and Jackson (1989) identify a lack of
attraction and competitiveness of its tourist centres. In order to redress this negative
state of accounts, the administration (the Isle of Man Tourist Board) promoted a new
plan that sought to adapt promotion, invest in the natural and cultural heritage,
strengthen coordination between the public and the private sectors, attract newsegments
of demand, reduce seasonality and improve the quality of tourism infrastructures.
In addition, in the late 1980s and the early 1990s, European Mediterranean coastal
resorts sustained similar processes of restructuring tourist centres. With regard to this,
Morgan (1991) and Aguil, Alegre, Cladera and Sard (2002) observe how the island of
L. Beas 86
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Mallorca, faced with the problems of stagnation at some of its destinations, put into
practice measures to attract new markets, diversify and improve the quality of the
supply, urban reorganisation of spaces, and the decision to favour sustainable develop-
ment. Along these lines, Camisn and Monfort (1998) in the Costa Blanca (Alicante)
and Priestley and Mundet (1998) referring to the Catalan coast, stress differentiation,
quality, supply management and the global improvement of the image of the destination
as key elements in maintaining the activity and rendering the tourism model efcacious.
Onthe islandof Cyprus, Ioannides (1992) emphasises the involvement of the local gov-
ernments in the design of tourismredevelopment plans when attempting to ensure the con-
tinuityof the activity. The measures inthese plans recommendedfor applicationfocusedon
diversifying the product (convention tourism, agrotourism, etc.) and on regulating tourism
growth. In fact, Pollard and Domnguez (1993), based on the example of Torremolinos
(Costa del Sol), underline the importance of planning applied from the local sphere as a
fundamental instrument in order to minimise and avoid new negative impacts.
There are signs, therefore, of the intention of the public administration to provide
sufcient planning tools as to reorient, diversify and reposition sun, sea and sand des-
tinations. Specically, on the Spanish Mediterranean coast, several public initiatives
derive therefrom, formulated on a state level but implemented on a regional, and prin-
cipally on a local scale, with the clear desire for collaboration and with the intention of
involving the private sector.
Among the different restructuring actions that have taken place on the Spanish Med-
iterranean coast, Anton Clav (2004) has identied three progressive generations of
strategies: renovation, differentiation and sustainability.
To this end, Donaire, Fraguell, and Mundet (1997) acknowledge initiatives on the
Costa Brava linked to rejuvenation as of the 1980s, with the aim of correcting the pro-
blems resulting from mass growth typical of the previous decades such as deciencies
in town planning and shortcomings in infrastructures, by providing public spaces,
rearranging the coastline, improving urban accessibility, etc. The strategy of renovation
continued during the 1990s, but aimed rather at destinations aesthetic and functional
improvement and increasing the quality of tourism establishments, as observed by
Curtis (1997) in his analysis of Benidorm.
With regard to actions aiming at differentiation, which began in the early nineties,
authors such as Salv (1998) and Valenzuela (1998) highlight the importance of diver-
sifying the supply of tourism by incorporating new products, complementing the tra-
ditional supply of sun, sea and sand. In particular, Vera and Baos (2010), based on
an analysis of the coast of Alicante, speaks of the establishment and renewal of rec-
reational facilities related with sport (golf, water activities, etc.), leisure (theme
parks, aqua parks and other entertainment facilities), nature, culture, business, health,
etc., as key elements in the process of restructuring destinations.
In the mid-1990s, the need arose to incorporate sustainable development criteria in
the management of tourism activities based on enhancing environmental and cultural
resources, such as, for example, the case of Roses (Donaire, 2000); but also, in the
application of local-level sustainability programmes, such as the renowned Local
Agenda 21 in Calvi (Bustamante, 1997); or by means of environmental certication
instruments such as the environmental management of some beaches in the Valencian
Community based on ISO 14001 (Yepes, 2004); such initiatives provide the destination
with identity and prestige.
One of the most notable restructuring strategies within tourism planning of the
Spanish sun, sea and sand destinations has been the tourism excellence plans, a
Journal of Policy Research in Tourism, Leisure and Events 87
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product of a new culture of tourism in Spain, based on the integral treatment of the des-
tination; the leadership of the local administration and co-responsibility.
In fact, excellence plans came about with the rst Spanish Framework Plan for
Competitiveness in Tourism, or Plan Futures I (19921995), in response to the
decline felt at the end of the 1980s at different mature tourist destinations, especially
sun, sea and sand resorts. The success of this planning and tourism promotion mechan-
ism helped towards its continuance during the Spanish Framework Plan for Competi-
tiveness in Tourism, or Plan Futures II (19961999) and the Integral Quality Plan for
Spanish Tourism or PICTE (20002006).
Thus, it is an instrument promoted by the State, in collaboration with the auton-
omous and local administrations, whose common aims are to increase the quality of
the tourism services of the destination; to improve the municipalitys urban and
natural environment; to extend and improve the complementary offer; to valorise
tourist resources, to create new products; in addition to raising the awareness of and
involving the population and the local stakeholders in the culture of quality. In order
to achieve these goals, the actions proposed in an excellence plan had to deal with
the following aspects: conditioning and improving the beaches; providing equipment,
embellishment and signage actions; improving points of access; providing green areas;
urban and patrimonial recovery; environmental planning and actions; diversifying and
enriching the tourism supply.
The initiative to adopt an excellence plan has in general been that of the town coun-
cils, although it has also been the case in supramunicipal territories where communities,
comarcas (local administrative regions), inter-insular councils and insular councils have
come to agreements. In addition, the autonomous communities were entrusted to assess
the applications and select the candidate destinations, from which the State Directorate
General for Tourism chose the best proposals each year. The selection process took into
account the rigour of the proposals, the projects technical and aesthetic quality, their
capacity for innovation, the commitments with the tourism entrepreneurs of the desti-
nation to participate actively in the plan, as well as the introduction of sustainability
criteria. As far as the funding of the plans is concerned, this was shared equally
among the three administrations involved with no pre-established limit.
In accordance with the lines of action followed by the tourism excellence plans, it
can be stated that they are created in the context of renovation. Nevertheless, due to
their exibility in types of action, they are also used in the context of differentiation
and sustainability strategies. Thus, excellence plans represent a clear example of initiat-
ive aimed at substantially improving the quality of mature destinations in a process of
restructuring these spaces.
Area of study. Tourist destinations with a tourism excellence plan in the
Catalan coast
During the validity period of this tourism management instrument (19922006), in Cat-
alonia a total of 10 excellence plans were granted out of the total of 84 approved for the
whole of Spain. Seven of the 10 plans implemented in Catalonia are situated on the
coast, concretely on the Costa Brava (Roses and Lloret de Mar); the Costa del
Maresme (Calella de Mar); the Costa del Garraf (Sitges) and the Costa Daurada (El
Vendrell, Salou and Cambrils) (see Figure 1). They are municipalities of similar
size, between 16 and 37 thousand inhabitants, that, since the 1960s have become hot
spots for new residents and activities due to their prominent economic dynamics.
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Figure 1. Catalan coastal municipalities with a tourism excellence plan. *The municipality of
Roses developed an excellence plan but it has not been analysed using the Delphi method.
Source: Compiled by author.
Journal of Policy Research in Tourism, Leisure and Events 89
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The tourism sector is certainly relevant due to the strong presence of second residences
in all of the localities (with volumes that double or triple the registered population) and
clear specialisation in hotels at Lloret (30,004 places), Salou (27,846 places) and
Calella (11,558 places). Camp sites complement the supply of accommodation but
do not reach the gures of the two other types (Table 1).
For the municipalities that have implemented tourism excellence plans, this tool has
meant an average investment of 2.42 million euros, ranging from a minimum of 1.62
million corresponding to Sitges, up to a maximum of 3.61 million in the case of El
Vendrell and a duration of 3 years, barring El Vendrell, Salou and Cambrils, which
had a duration of 4 years (Table 2).
With regard to the distribution of budgets according to the type of measures
1
(Table 3), it is clear that the main chunk has been used to adapt to the urban environment
(68.59%).
In second place comes product creation (13.13%), by means of small projects aimed
at valorising patrimonial and especially cultural resources. With the application of this
Table 1. Prole of Catalan coastal municipalities with a tourism excellence plan.
Roses
Lloret de
Mar
Calella de
Mar Sitges
El
Vendrell Salou Cambrils
General data
Municipal surface
area (km
2
)
45.91 48.7 8 43.9 36.8 15.1 35.2
Length of beaches
(km)
4.43 3.8 2.98 7.06 6.09 3.49 7.45
Population (2008) 16,463 37,734 18,615 27,070 34,931 25,754 30,956
Population density
(hab/km
2
)
423.94 774.67 2326.88 617.33 949.21 1702.18 879.18
Supply of accommodation (places)
Hotels (2008) 6895 30,004 11,558 4970 2641 27,846 5534
Camp sites (2008) 2101 3421 1868 1865 3106 5341 8458
Second residences
(2001)
77,049 32,238 11,259 24,170 70,205 60,111 67,441
Source: Compiled by author based on statistics from Idescat, the Tourism Observatory of Catalonia and the
Spanish Ministry of the Environment, Rural and Marine Affairs.
Table 2. Tourism excellence plans implemented on the Catalan coast.
Plans Period Investment (in million )
Calella de Mar (19982001) 2.70
Lloret de Mar (19992002) 2.70
Salou (19992003) 1.80
Cambrils (19992003) 1.80
Roses (20002003) 2.70
El Vendrell (20012005) 3.61
Sitges (20032006) 1.62
Source: Compiled by author based on data from the Secretary General of Tourism of Spain.
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set of measures, it can be said that the excellence plans for the Catalan coast were not
devoted solely to strengthening the classic sand, sea and sun resource, but also
included, to a lesser extent, products geared towards satisfying the new demands of
todays tourist by enriching the offer.
Of lesser importance than the previous two groups are enterprise management,
quality and dynamisation measures, which accounted for 9.70% of the average invest-
ment of the plans. Another set of measures refers to marketing and communication
initiatives, which on average represent 7.57% of the funding of the plans. Lastly, the
adaptation of the natural environment is the initiative with the least weight, a mere
1.01% average of the total budget.
It should be said that the distribution of the investment provided by the excellence
plans across the municipalities of Catalonia is quite similar to the average for Spain as a
whole, with large amounts given over to adapting the urban space (55.48%) and the
creation and diversication of the product (25.62%), although on the Catalan coast,
more has been devoted to urban improvement and less to the tourist product. Also
Table 3. Distribution of investments by measures in the tourism excellence plans on the
Catalan coast (%).
The municipality of Roses developed an excellence plan but it has not been analysed.
Source: Compiled by author.
Journal of Policy Research in Tourism, Leisure and Events 91
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similar, but of less amount, are the percentages corresponding to marketing and com-
munication (7.04%), enterprise management, quality and dynamisation (6.75%) and
adapting to the natural environment (5.11%). Nevertheless, on the Catalan coast,
more has been invested in management and quality to the detriment of environment-
associated measures (Beas, 2009).
Therefore, the majority of measures are linked with the transformation and improve-
ment of the urban environment, both on the Catalan coast and for Spain as a whole. This
would t within the framework of the strategy of renovation dened by Anton Clav
(2004). Second, there are such actions geared towards product creation, management,
quality and marketing, devised in order to give the destination its uniqueness, but they
do not take on such importance or become such a priority as the rst set of measures.
Initiatives related with sustainability, such as improving the environment and valorising
cultural heritage, are less signicantly present than the other lines of action
implemented by the excellence plans.
Evaluation of the results of tourism excellence plans
Traditionally, Spanish public tourism policy has lacked adequate monitoring and analy-
sis instruments. This is the case of tourismexcellence plans. Given the importance of this
initiative, this article proposes the Delphi method as an instrument to assess their impact.
Delphi is a qualitative research method that enables understanding situations and
interpreting phenomena concerning which no conclusive information is available or
such information is difcult to obtain, via the opinion given by a group of people with
specic knowledge of the topic being dealt with. It was considered suitable to use the
Delphi method for the study of excellence plans principally for four reasons. First,
because no conclusive information is available on the subject of analysis; second,
because it is deemed suitable that it should be the experts from the sector who evaluate
the excellence plans, since they have in-depth knowledge of the destination and, at the
same time, have been on the receiving end of the results obtained as a result of their appli-
cation; third, the information is not equal for all of the municipalities; and last, the overall
interest in evaluating the usefulness of the tourism excellence plans as an instrument for
carrying out policies to improve the quality of tourist destinations.
The selection of the members of the panel of experts was carried out on the basis of
two fundamental premises:
(1) People with in-depth knowledge of the destination, its tourism dynamics and
tourism policy.
(2) Representatives of sectors that are involved in the destinations tourist sector
from the public and private areas or from associations.
For each destination, 10 people were chosen, classied according to three groups, as
can be seen in the Table 4.
In order to analyse and assess tourism excellence plans, a questionnaire was devised
containing the following sections:
. Characterisation of the destination.
. Evaluation of the excellence plan.
. Evaluation of the impacts of the excellence plan.
. Overall evaluation.
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On a scale of 15 (where 1 is the lowest value and 5 the maximum), the experts
evaluate the different issues. Depending on the issue, either the extent of agreement,
importance, knowledge, utilisation and satisfaction is evaluated. Table 5 shows the
structure of the questionnaire in greater detail.
In an initial round, the questionnaire, lasting an hour and a half on average, was
administered personally and directly. In this way, additional opinions were obtained
to those strictly dealt with in the questions and, of course, a more precise response to
the questions was ensured since the interviewer was present and could clarify any
possible doubts. In the second round, the experts have at their disposal the mean
value of all of the responses of the questionnaires completed in the rst round as
well as the arguments of the other experts. Then, the expert can keep his opinion or
change it. The purpose of the second round is to eliminate the divergences of the
rst round in order to achieve the greatest possible consensus. The medium chosen
Table 5. Structure of the questionnaire.
Sections Variables
Characterisation of the
destination
Main strengths and weaknesses of the tourist destination
Situation of the tourism entrepreneurial fabric
Importance given by municipal policy to a series of measures
either directly or indirectly related with the tourist industry
Evaluation of the
excellence
plan
Degree of knowledge of the excellence plan (population and
tourists)
Degree of knowledge of the measures (population and tourists)
Degree of utilisation of measures (population and tourists)
Degree of satisfaction with measures (population and tourists)
Role of the private sector in the development of the excellence
plan
Evaluation of the impacts
of the excellence plan
Territorial impact
Social impact
Impact on tourist activity
Overall evaluation of the excellence plan.
Source: Compiled by author.
Table 4. Prole of experts.
Sector Responsibility Number
Administration Manager of the excellence plan or of the local tourist
board in the event that the plan has expired
2
Tourism councilor
Tourism Entrepreneurial
Fabric
The representative of the private sector in the excellence
plan
5
Presidents of business associations (hoteliers, camp sites,
owners of apartments to let, catering, travel agencies)
Important players from the tourism business world
Society Presidents of traders associations, residents associations,
conversation groups, directions of journals and local
cultural entities
3
Source: Compiled by author.
Journal of Policy Research in Tourism, Leisure and Events 93
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in order to carry out this second round was e-mail. The questionnaire was given to the
experts between the months of February and June 2005.
The method was initially applied individually to analyse each of the tourism excel-
lence plans of the Catalan coast, both in order to ascertain the behaviour of the desti-
nations themselves and the effects of the initiatives implemented by the plans. Once
this procedure has been carried out, the information obtained has been processed
based on statistical measures of central tendency (median and quartiles) and of dispersion
(interquartile range), which have been used to perform a joint evaluation, where the
common points that nally dene the global impact of the plans are highlighted.
Characterisation of the municipalities with tourism excellence plans
According to the experts interviewed in the analysis process, the strong points of the
destinations on the Catalan coast that have implemented an excellence plan are their
consolidated image, a signicant quality hotel supply (concentrating 47.90% of all
hotel accommodation and 58.16% four and ve star hotels, compared with the whole
of the Catalan coast barring Barcelona, 2005), in addition to the good upkeep of the
beaches. The main weaknesses are related with inadequate access to tourist areas,
marked seasonality and little tourist use made of the natural heritage, indeed defects
arising from the legacy of a mass sun, sea and sand model (Table 6).
The tourist sector enterprise of those destinations that have an excellence plan
(Table 7) is characterised by signicant activities of membership organisations.
Table 6. Perception of the main strengths and weaknesses of the Catalan coastal destinations
with a tourism excellence plan.
Evaluation (1 min.5 max.)
Strengths
Good infrastructures and basic services 3.08
Good transport communications 3.08
Suitable access to tourist zones 2.58
Broad complementary offer 2.92
Consolidated image 4.00
Tourist use of historical heritage 3.17
Tourist use of natural heritage 2.25
Large hotel supply 3.83
Good state of beaches 4.00
Weaknesses
Deteriorated urban landscape 3.08
Congestion of destination 3.42
Low quality supply of accommodation 2.33
Lack of training 3.42
Lack of boosting of cultural and natural resources 3.17
Tourism with low levels of expenditure 3.58
Marked tourist seasonality 3.92
Low level of awareness of resident population 2.83
Source: Compiled by author.
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During the period 19952005, according to the experts, private agents have devoted a
part of their investment to improving infrastructures and increasing the quality of ser-
vices. This process has been especially intense in the hotel industry. According to Beas
(2009), most initiatives have ended up in the closure of small and obsolete establish-
ments, the reclassication of hotels and the opening of new, high value-added hotels
(four and ve stars). On the other hand, the entrepreneurs have shown little interest
in the professionalisation of their employees, which according to the experts is due
to seasonality and the high turnover experienced in this sector. Nor have tourism com-
panies paid much attention to the creation of new products and differentiated services.
During the period 19952005 (Table 8), according to those interviewed using the
Delphi method, the management of these municipalities was characterised by the
scarce attention paid to recovering natural spaces and the introduction of environmental
management mechanisms. Insofar as the development of environmental initiatives,
though some projects have been started in this eld (Local Agenda 21s, Sustainable
Tourism Municipality Municipio Turstico Sostenible, and several ecolabels), so
far, their success has hardly been noticed, probably due to the lack of conviction on
the part of the local administration. As a consequence, the tourist development of
these municipalities has been carried out on the basis of hardly sustainable criteria: dis-
proportionate urban growth with problems to reconsider the model, a lack of policies
governing the conservation and rehabilitation of the (natural and cultural) heritage,
and therefore limitations when it comes to integrating the resources with identity,
Table 7. Evaluation of the tourist sector enterprise on the Catalan coastal destinations with a
tourism excellence plan.
Evaluation (1 min.5 max.)
High degree of belonging to membership organisations 3.83
Good consensus 2.92
Investment to improve furnishings and equipment 4.00
Investment to increase the quality of services 3.75
Concern for training of employees 2.75
Creation of new, non-standard products and services 2.67
Source: Compiled by author.
Table 8. Evaluation of the role of the local administration on Catalan coastal destinations with
a tourism excellence plan during the period 19952005.
Evaluation (1 min.-5 max.)
Improved urban ttings and furnishings 3.17
Improved urban services 3.00
Recovery of natural spaces 2.25
Rehabilitation of historicalcultural heritage 2.92
Implementation of environmental management mechanisms 2.58
De-seasonalisation of tourist activity 2.67
Dening new parameters of urban growth 2.00
Economic diversication 2.17
Source: Compiled by author.
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which are the fundamental types that contribute to complementing the sun, sea and
sand model and at the same time de-seasonalise the activity.
Evaluation of the measures implemented within the framework of tourism
excellence plans
Despite having carried out several communication and dissemination activities, much
of the population, and especially tourists know hardly anything about the tourism excel-
lence plans. Yet, most of the tourism entrepreneurial fabric is aware of its implemen-
tation, given that in all of the plans analysed, it is a signatory of the collaboration
agreement between the central, autonomous and local administrations (Table 9).
According to the experts (Table 10), only the local population specically identies
those initiatives that have been more visibly manifest or have brought about some kind
of controversy.
The resulting actions that have been the most used by the resident population are the
ones related with conditioning and improving the beaches, and with urban recovery.
With regard to tourists, the initiatives they perceive the most are related with condition-
ing and improving beaches and the provision of urban furnishings and equipment.
Table 9. Perception of the level of knowledge of the tourism excellence plans for the Catalan
coast.
Evaluation
(1 min.5 max.)
Most of the population has some knowledge of the plan 2.17
Most of the tourists have some knowledge of the plan 1.00
Most of the tourism entrepreneurial fabric has some knowledge of the
plan
4.17
Most of the tourism entrepreneurial fabric is aware of the aims of the plan 3.33
Source: Compiled by author.
Table 10. Perception of the level of knowledge of the measures of the tourism excellence plans
on the Catalan coast by the population and by tourists.
Evaluation (1 min.5 max.)
Population Tourist
Conditioning and improving beaches 1.60 1.10
Provision of furnishings and equipment 1.60 1.10
Improved access points 1.75 1.13
Urban recovery 2.00 1.00
Diversication and enrichment of the supply 1.75 1.00
Environment 1.67 1.00
Training 1.25 1.00
Marketing and communication 1.70 1.00
Entrepreneurial management and dynamisation 2.00 1.00
Source: Compiled by author.
L. Beas 96
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However, the actions least used by the population and tourists are linked with market-
ing and communication, but above all those devoted to the environment, which would
be explained by the intangible nature of some such actions and their scarcity (Table 11).
The experts perceive the overall evaluation of the measures by both the local popu-
lation and by tourists as being positive (Table 12), especially those referring to con-
ditioning and improving beaches, the provision of urban furnishings and equipment
and urban recovery. In addition, tourists are satised with training initiatives.
Concerning the role of the private sector in the development of the plan (Table 13),
most of the experts are quite in agreement that the different tourist business subsectors,
through guilds or associations at the destinations, have been consulted with regard to
dening the plans objectives. Nonetheless, the experts consider that participation by
entrepreneurs in diagnosing and proposing the plans lines of action has been moderate
since the local administration has taken on an almost absolute leading role at some
Table 11. Evaluation of the use of the measures of the tourism excellence plans on the Catalan
coast by the local population and by tourists.
Evaluation (1 min.5 max.)
Population Tourist
Conditioning and improving beaches 4.00 4.50
Provision of furnishings and equipment 3.25 4.13
Improved access points 2.83 2.67
Urban recovery 3.60 3.40
Diversication and enrichment of the supply 2.80 3.00
Environment
Training 3.00 3.00
Marketing and communication 2.60 2.70
Entrepreneurial management and dynamisation 3.00 3.00
Source: Compiled by author.
Table 12. Evaluation of the level of satisfaction with the measures of the tourism excellence
plans on the Catalan coast by the local population and by tourists.
Evaluation (1 min.5 max)
Population Tourist
Conditioning and improving beaches 3.50 3.50
Provision of furnishings and equipment 3.63 3.75
improved access points 3.00 2.83
Urban recovery 3.60 3.50
Diversication and enrichment of the supply 3.00 3.20
Environment
Training 2.75 4.00
Marketing and communication 2.60 3.00
Entrepreneurial management and dynamisation 3.00 3.00
Source: Compiled by author.
Journal of Policy Research in Tourism, Leisure and Events 97
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destinations. Also, on an economic level, tourism entrepreneurs have not collaborated
excessively in actions complementary to the plan.
Evaluation of the impacts of tourism excellence plans
The experts quite agree (Table 14) that within the excellence plans, measures to
improve beach areas have not been the sole consideration, though the beaches are in
good condition, thanks to the role played by the respective local governments prior
to the plan, but that also measures have been designed to have an effect throughout
the tourist structure of the destination. This fact has brought about certain improve-
ments to the urban-tourism structure and the services on offer, as well as contributing
to valorise the territory. However, the plans have not got any supramunicipal measures
underway with neighbouring towns.
The social impacts of the plans have been rather scarce (Table 15), since the degree
of awareness of the local population as to the phenomenon of tourism has not increased.
In fact, according to the experts, the problems associated with mass tourism (noise,
saturated communications routes, dirt, deterioration of the landscape, etc.) have led
Table 14. Evaluation of the territorial impacts of the tourism excellence plans on the Catalan
coast.
Evaluation
(1 min.5 max.)
Spatially integral treatment 3.58
Incorporation and coordination between the different coastal spaces 2.08
It has led to improvements in the urban-tourism structure 3.50
It has helped to valorise the territory 3.08
Source: Compiled by author.
Table 13. Perception of the role of the private sector in the development of the tourism
excellence plans on the Catalan coast.
Evaluation (1 min.5 max.)
Representation by many of the tourist enterprise subsectors 3.08
Active participation in the diagnosis of and proposals for measures 3.17
Monetary participation in actions complementary to the plan 1.67
Source: Compiled by author.
Table 15. Evaluation of the social impacts of the tourism excellence plans of the Catalan coast.
Evaluation (1 min.5 max.)
Greater awareness raising of the local population concerning
the tourism phenomenon
2.33
The local population has been involved in the development of
the plan
1.67
Source: Compiled by author.
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to a negative attitude of the residents who do not live directly from this activity, which
will be difcult to change unless a reorientation of the model is considered and suitable
awareness raising and motivation campaigns are implemented. Neither has the local
population been involved in developing the plan, despite some destinations organising
different meetings to debate its content together with the administration, the tourism
institutions and the citizens in general. These forums have proved little effective due
to such reasons as the delay in setting them up, the lack of continuity of the meetings
and difculties in implementing the participatory process.
In respect of the impacts of the plans on the tourism sector (Table 16), respondents
consider that the most outstanding involve:
. Improving the quality of public tourism services.
. Potentiating pre-existing products, fundamentally by improving and conditioning
the beaches.
. Valorising cultural and, to a lesser extent, natural resources.
. Creating a specic supply of active and family tourism.
and the plans have had little repercussion insofar as:
. Increasing the quality of tourist establishments, since, in the early 1990s, most
destinations started a requalication process, basically dealing with hotel accom-
modation, aside from the plans.
. Boosting a model of sustainable development for the activity.
. Creating new tourist management bodies.
According to the experts, the plans have nally not managed to dynamise the des-
tination due to several reasons, including, most notably, the marked leading role played
by the public administration, their short duration, scarce funding, excessive assignation
of the budget to urban improvement, management problems, the drafting of reports
instead of actual material actions and, in some cases, the lack of cooperation
between the public and the private sectors. Despite everything, they are worthy of
overall positive evaluation, principally for having been a tool of reection and aware-
ness raising for the tourism agents as to the need to improve destinations (Table 17).
Table 16. Evaluation of tourism impacts of the tourism excellence plans of the Catalan coast.
Evaluation (1 min5 max.)
Increased quality of tourism establishments 2.50
Improvement to quality of public tourism services 3.08
Potentiating pre-existing products 2.75
Valorising natural resources 2.75
Valorising cultural resources 3.00
Creation of specic supply 2.67
Promoting sustainable development of the activity 2.42
Creation of new tourism management bodies 2.25
Source: Compiled by author.
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Conclusions
In view of the weaknesses manifested by Spanish coastal tourism at the end of the
1980s, the Spanish public administration embarked on a change of direction towards
tourism planning and management by designing new approaches to deal with the
changes in demand and consolidate the position of privilege of the Spanish coast on
the international tourism market.
To this end, among the different actions to reactivate the sector promoted by the
public administration are the tourism excellence plans. According to the principles of
this initiative, the most notable contributions were to be the fostering of co-responsibil-
ity and the leadership of the local administration, the overall improvement of the
tourism space, the incorporation of sustainability criteria and the strategic and planning
vision applied to the destinations.
One of the most innovative objectives of the tourism excellence plans was to
promote the leadership of the local administration based on the co-responsibility of
all agents involved in the destination. In fact, local entities had to assume responsibility
when deciding upon and designing the measures, because it was acknowledged that the
town and city councils are the ones with the most competencies and are closest to the
needs of tourists and residents. However, from the analysis performed in Catalan
coastal districts using the Delphi method, it has been found that one of the factors
that a priori should have been positive has at the same time become one of the
plans main problems because the local administrations at these destinations have
undertaken to create and materialise all of the projects, despite participation by entre-
preneurs in the plan, which has, in the end, been more theoretical than practical. Thus,
it is conrmed that the opinion of the private sector, though represented at the different
committees, is only taken into consideration on certain specic matters. This situation
has arisen to a great extent as a result of the plans model of funding, which has been
entirely assumed not only by the public institutions (Spanish State, autonomous com-
munity and town council) on the Catalan coast, but also due to the limited degree of
interaction among the different business associations, granting the town councils a pos-
ition of strength at the time of diagnosing and deciding upon the initiatives to be
implemented. With regard to cooperation between the administrations, it can be
stated that it has been limited to holding different follow-up meetings and the provision
of the established monetary amounts. Therefore, it can be afrmed that the tourism
excellence plans of the Catalan coast have not provided the necessary instruments
and actions as to be able to improve cooperation, a problem again pointed out by
Agarwal (1997, 1999) as one of those requiring a solution at resorts in the south of
Great Britain.
Table 17. Global evaluation of the tourism excellence plans of the Catalan coast.
Evaluation
(1 min.5 max.)
It has been possible to dynamise the destination 2.33
Cooperation has increased between the public and private sectors 2.75
Greater awareness by tourism agents as to the need to improve the destination 3.58
The plan deserves overall positive evaluation 3.75
Source: Compiled by author.
L. Beas 100
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With reference to the role of the plans in the overall improvement of tourist areas,
analysis has allowed observing the presence of different initiatives in the coastal muni-
cipalities studied, mostly aiming at transforming the image and correcting shortcomings
in destinations infrastructures and services. Among the most notable measures in this
eld are those linked with the adaptation of the urban environment, on which some 70%
of the overall investment of the plans has been made in order to solve the problems of
quality inherited from the haphazard growth in mass tourism, that is to say, priority has
been given to typical projects of the renovation cycle (see Anton Clav, 2004), which,
according to the experts, the local administrations ought to have developed previously
within their ordinary budget, but which, due to the lack of funding, had never
materialised.
In fact, on the Spanish coast, the municipalities with the longest tradition and great-
est specialisation in tourism are the ones that have accumulated the greatest need to
adapt and modernise their tourist areas, as can be seen with the actions carried out
on the Costa Brava (Donaire, Fraguell, & Mundet, 1997) or in Benidorm(Curtis, 1997).
In spite of all, the plans have provided an opportunity to break the situation of stag-
nation experienced by some municipalities and have paved the way to change the
model, with some actions aimed at the differentiation and sustainability of the desti-
nations beginning to be applied. Such strategies have also been applied in other
Spanish coastal centres as the criteria to be followed in order to adapt to the new
tourism scenario (Bustamante, 1997; Donaire, 2000; Salv, 1998; Valenzuela, 1998;
Vera & Baos, 2010; Yepes, 2004, etc.). In any case, although 30.4% of the overall
budget has been devoted to differentiation and sustainability actions, the nature of
such investments has proved highly incipient in the plans, since just 13.13% has
been set aside to diversify the supply and a tiny 1.01% for the environment (Beas,
2009). Perhaps, if at the end of the 1990s Catalan coastal resorts had solved the funda-
mental problems of tourism areas or if there had been more funding for the plans, the
impact of these initiatives on the Catalan coast might have been further reaching. Also,
it should be pointed out that the average investment of the Catalan coastal plans was the
equivalent of 3.78% of the municipal budget and, therefore, neither was it such a sig-
nicant amount as to get great restructuring policies underway, but, as has been said
previously, it was sufcient to correct certain defects and embark upon positive
synergies.
To this end, in spite of the plans limited budget, their short duration (3 or 4 years),
the momentary, nite nature of most measures, these municipalities have timidly
adopted some initiatives with the aim of revitalising and giving a new strategic
vision to the destination, which have been positively evaluated in the analysis.
Therefore, on the basis of the analysis performed, it can be stated that in respect of
the targets planned by the administration, the excellence plans for the Catalan coast
have demonstrated:
. Excessive protagonism on the part of the local administration.
. A lack of uent collaboration between the public and the private sectors.
. Scarce perception by tourists and the local population of the existence of the
plans and their measures, whose executor, in many cases, was not known to them.
. The marked trend towards improving the urban structure and services.
. The scarce effects on product creation and on the development of sustainable
policies.
. Scarce business dynamisation.
Journal of Policy Research in Tourism, Leisure and Events 101
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. The lack of shared tourism organisation and management formulas.
. The difculty in giving continuity to the actions of the plan and the limited stra-
tegic vision.
In any case, it has been seen that the plans present some positive aspects given that:
. They have provided a source of funding over and in addition to the town
councils.
. They have enabled improving the image of the destinations.
. They have initiated some product differentiation projects.
. They have meant a starting point for the planning and management of
destinations.
In summary, following the arguments presented herein, the value of excellence
plans in the process of the transformation of Catalan coastal destinations is conrmed,
proving that these places apply corrective measures that are fully incorporated within
the general interpretative framework of tourism restructuring as considered by
Agarwal (2002) and in the rejuvenation stage as dened by Butler (1980).
Nonetheless, it has also been seen that excellence plans had their shortcomings as
regards their conguration and effectiveness at revitalising sun, sea and sand munici-
palities. For this reason, the Spanish public administration, within the framework of
the 2020 Spanish Tourism Plan, has designed a programme to reclassify mature
tourist destinations. This programme is divided into three lines of action:
. Tourism Infrastructures Modernisation Funds (FOMIT), working to rehabilitate
urban and natural amenities and environments.
. The Plan Renovate renewal scheme, aimed at modernising the supply of accom-
modation, catering and complementary services.
. The Extraordinary Project for the Reclassication of Mature Destinations, which
aims to achieve the integral reconversion of these tourism areas of tourism.
Finally, noteworthy is the presentation in early 2011 of a specic plan for the coast-
line, the 21st Century Coastal Plan, which focuses on rehabilitating the tourist desti-
nations of the Spanish Mediterranean coast and the Canary Islands, based on the
principles of competitiveness, sustainable development, diversication and innovation.
Note
1. The municipality of Roses has been excluded from this analysis since the administration did
not prove receptive when invited to participate in the study. Neither has it provided the
necessary information.
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