European tourism is rebounding strongly after the disruption of the COVID‑19 pandemic, bringing back familiar challenges in some popular destinations. Before 2020, many European hotspots grappled with “overtourism” - a situation where visitor numbers and behavior strain local environments and communities. As travel resumes, this unbalanced tourism growth is again at the root of destination-level challenges. Policymakers, industry stakeholders, and communities are revisiting how to balance tourism’s undeniable economic benefits with its social and environmental limits. In response, the European Commission has commissioned research to help destinations build more sustainable tourism models. Two major 2022 EU reports provide a neutral, evidence-based analysis of tourism imbalances across Europe, their causes and symptoms, and tools to monitor and manage tourism pressures moving forward.

The Phenomenon of Unbalanced Tourism Growth

In many European cities, resorts, and heritage sites, tourism demand in the 2010s grew faster than local infrastructure and governance could adapt. This led to crowding, environmental degradation, and friction with residents - hallmarks of what is often termed unbalanced. The EU study on unbalanced tourism confirms that unbalanced is a complex, multifaceted phenomenon, not defined by any single threshold of visitor numbers. Importantly, it is context-dependent: what feels unsustainable in a small rural village may differ from an urban capital. Destinations perceive and experience tourism pressure differently based on their size, environment, and community values. The study emphasizes that managing tourism cannot rely on a one-size-fits-all carrying capacity beyond which everything “breaks” - instead, both quantitative data and qualitative insights are needed to judge when tourism growth becomes unbalanced.

Root causes of these imbalances vary by location. Broadly, the research indicates unbalanced tourism has been fueled by decades of emphasis on maximizing visitor volumes, coupled with global travel trends making popular areas ever more accessible. Weak spatial planning and limited regulation of the tourism boom have in many cases amplified the strain on local resources. The COVID-19 crisis briefly interrupted these patterns, but also produced new dynamics - for example, some destinations saw surges of domestic tourists and day-trippers when international travel was restricted. This redistribution of pressure showed that tourism imbalances can quickly shift form: places previously off the beaten path can suddenly face crowding when other options are closed. Overall, unbalanced tourism growth is a compound result of high demand, concentrated supply, and governance gaps in dispersing or managing visitor flows.

Symptoms and Impacts at the Destination Level

When tourism growth outpaces a destination’s capacity to manage it, the symptoms are evident. The EU reports detail a range of negative impacts across economic, environmental and socio-cultural spheres. Local residents often experience overcrowded public spaces, noise, traffic congestion, and rising prices for housing and goods - factors that can spark social conflict between hosts and visitors. In extreme cases, this can evolve into local backlash against tourism. The character of historic city centers or fragile rural landscapes may suffer as well: excessive footfall and improper waste management lead to pollution, physical wear and tear on heritage sites, and pressure on ecosystems.

Importantly, unbalanced tourism can erode the quality of life and experience for both residents and visitors. The crowded conditions diminish the experience for tourists even as they frustrate locals. The research found that unbalanced tourism ultimately endangers a destination’s long-term competitiveness and appeal. In other words, if a place becomes notorious for being “overrun” or spoiled by mass tourism, it may start to lose the very market it built.

The problem touches all types of destinations, from iconic cities to remote natural areas. The study specifically examined different destination typologies – urban, coastal, island, rural, and mountain areas - and found each faces unique challenges and forms of imbalance. For example, urban cultural cities might struggle with tourist-resident conflicts and housing affordability, whereas small islands might face seasonal overcrowding that stresses ecosystems and supply chains. Recognizing these nuances is crucial for tailoring solutions.

Identifying and Monitoring Tourism Pressures

A key lesson from the EU analyses is that destinations need to detect the signs of tourism pressure early and base decisions on evidence. Unbalanced tourism growth cannot be managed without the right data and indicators. The reports highlighted a general lack of refined, destination-specific data in the past, which made it hard to pinpoint when and where unbalanced tourism was emerging.

To address this, one of the study’s most strategic outcomes was the development of a set of indicators to help measure and monitor tourism pressures. Rather than relying on any single metric, the proposed indicator framework is multi-dimensional. It includes quantitative measures like visitor numbers relative to local population or area, and seasonality indices, as well as qualitative gauges such as resident satisfaction and environmental quality indicators. This balanced scorecard approach acknowledges that sustainability in tourism has social, economic, and environmental facets that all need tracking.

Crucially, the research stresses that monitoring systems must operate at the appropriate scale and frequency. Many traditional tourism statistics are aggregated at national or regional level and reported infrequently. Managing unbalanced tourism, however, requires granular data at the local level and more real-time insights. The reports suggest establishing dedicated tourism observatories or using smart digital tools so that city or regional authorities can observe patterns and respond proactively.

By using the recommended indicators, destinations can identify “hotspot” areas or periods. This kind of evidence-based approach enables early warning systems for unbalanced tourism. It also allows measuring the effectiveness of any mitigation measures over time. As part of the EU’s tourism transition pathway, improving such data and monitoring is a priority. In sum, the reports advocate for an integrated monitoring framework where local data feeds into wider EU-level analysis, ensuring that tourism growth remains balanced with destination capacity and community well-being.

Destination Strategies and Good Practices for Balance

Beyond diagnostics, the EU reports provide a rich catalogue of good practices and policy responses that have been used to mitigate unbalanced tourism growth. Through case studies across Europe, the research demonstrates how destinations can adapt and innovate to manage visitor flows more sustainably. There is no single solution; instead, successful destinations tend to deploy a portfolio of measures tailored to their specific issues.

A common strategy is to spread tourism demand more evenly - both geographically and seasonally. For example, cities and regions have developed campaigns and attractions to promote off-season tourism. Similarly, many destinations are actively dispersing tourist flows territorially by marketing lesser-known locations and creating new routes or experiences away from saturated hotspots.

Another important set of measures revolves around quality over quantity. Rather than simply seeking ever more visitors, forward-thinking destinations focus on improving the quality of the tourist experience and the quality of life for residents. This can include limiting access when sites are at capacity, so that those who do visit have a better experience and local heritage isn’t damaged. It can also mean shifting marketing toward higher-value or longer-stay tourism.

Many destinations have also introduced governance measures: for instance, stricter regulations on accommodation and limits on day-trips or cruise ship entries at peak times. Managing public spaces through timed ticketing systems, visitor caps in sensitive areas, or congestion charges are all among the toolkit of solutions that have been piloted to prevent overcrowding.

Underpinning these practical steps is an emphasis on stakeholder collaboration and community engagement. The studied destinations that coped best with tourism pressures often had active involvement of local authorities, tourism businesses, and residents in decision-making. Some cities set up permanent forums where citizens can voice concerns about tourism development, which helps in designing measures that are socially acceptable and address real problems. The EU project itself held a series of workshops with different types of destinations, ensuring that diverse voices informed the findings.

Strategic Outlook for Sustainable Tourism Governance

Addressing unbalanced tourism growth is not only about solving today’s hotspots, but also about safeguarding the future of Europe’s tourism sector. The insights from these EU reports carry strategic significance as the Union and its Member States chart the Transition Pathway for Tourism and related policies. A clear message is that sustainability and competitiveness go hand in hand: destinations that proactively manage tourism pressures are more likely to remain attractive and resilient in the long term.

At the EU level, these findings feed into a larger strategy to make tourism greener, smarter and more resilient. By leveraging common indicators and sharing best practices via EU networks, policymakers can support each other in preventing unbalanced tourism from rebounding to pre-pandemic extremes.

The reports underscore the importance of multi-level governance: local actions need to be complemented by national and EU frameworks that encourage sustainable travel and fund capacity-building for destination management. Moreover, aligning tourism with broader agendas - such as climate neutrality targets and cultural heritage preservation - will require joined-up policies.

In conclusion, unbalanced tourism growth is a pressing challenge but one that can be addressed through informed, concerted action. The EU’s research provides a solid evidence base of what causes unbalanced tourism, how to recognize the warning signs, and how a mix of measures can restore balance. With tourism being a major socio-economic driver, adopting sustainable tourism governance is not only about protecting local communities and environments; it is also about securing the long-term vitality of Europe’s tourism sector.

Further Reading: Complementary EU Reports on Sustainable and Balanced Tourism

Several additional EU reports complement the main studies on unbalanced tourism, offering broader policy context and deeper territorial insights. 

The European Parliament’s briefing “Overtourism: impact and possible policy responses” (2020) offers a concise overview of the challenges posed by excessive tourism in urban and natural destinations. It outlines policy responses such as congestion pricing, visitor caps, regulation of short-term rentals, and taxation strategies to mitigate pressure on communities. Available here

Study on Unbalanced Tourism Growth at Destination Level examines “unbalanced tourism growth” (often called overtourism) in European destinations. It finds that, while EU tourism is recovering post-COVID, many hotspots (cities and heritage sites) are again experiencing crowding and conflicts. The report analyzes root causes and impacts, noting that overtourism is a complex phenomenon with social, economic and environmental dimensions. It emphasizes that no single metric captures overtourism - quantitative and qualitative indicators must be combined - and that unbalanced tourist flows can damage local quality of life and long-term competitiveness. The study compiles best-practice solutions, advising destination managers to monitor tourism intensity carefully and apply tailor-made mitigation (e.g. visitor caps, dispersal strategies) to ensure sustainable tourism.

Study on Unbalanced Tourism Growth at Destination Level examines “unbalanced tourism growth” (often called overtourism) in European destinations. It finds that, while EU tourism is recovering post-COVID, many hotspots (cities and heritage sites) are again experiencing crowding and conflicts. The report analyzes root causes and impacts, noting that overtourism is a complex phenomenon with social, economic and environmental dimensions. It emphasizes that no single metric captures overtourism – quantitative and qualitative indicators must be combined – and that unbalanced tourist flows can damage local quality of life and long-term competitiveness. The study compiles best-practice solutions, advising destination managers to monitor tourism intensity carefully and apply tailor-made mitigation (e.g. visitor caps, dispersal strategies) to ensure sustainable tourism

Also valuable is the JRC report “The Future of Cities” (2019), which analyses tourism in the context of broader urban transitions. Available here

Related Reports:

Unbalanced tourism growth at the root of destination challenges: Analysis and discussion

https://op.europa.eu/en/publication-detail/-/publication/05ffb3cc-39b9-11ed-9c68-01aa75ed71a1/language-en

Tourism transition path: Assessing tourism pressures in European destinations and options for indicators and monitoring systems

https://op.europa.eu/en/publication-detail/-/publication/816f1561-3a32-11ed-9c68-01aa75ed71a1/language-en