How Did the COVID-19 Pandemic Affect Functional Relationships in Activities between Members in a Tourism Organization? A Case Study of Regional Tourism Organizations in Poland

Abstract

A key research question that fits within the main objective is to identify the negative and positive effects of the COVID-19 pandemic on the functional relationships between members of regional tourism organizations (RTOs) in Poland. The study consisted of three stages: desk research, a diagnostic survey, as well as qualitative, and statistical analyses. Empirical data from all 16 Polish RTOs (regional DMOs) on 19 variables were collected. No significant symptoms of the negative impact of the COVID-19 pandemic on the functional relationship between RTOs and their stakeholders were found, except for the observed increased number of limitations of RTOs’ activities aimed at benefiting their members. As part of the study’s secondary objectives, key variables and methods were indicated. They identify the functional relationships of RTOs with member entities, with the environment, and are useful in building the effectiveness of the organization at the regional level in crisis situations. As the pragmatic goal of the study, a research tool was proposed that can be implemented to evaluate relations with the environment in other tourism destination management organizations at various levels of the tourism economy.

1. Introduction

The complicated network of existing multidimensional connections between the entities of the modern tourism market encourages attempts to assess the scale and nature of the relationship between these entities and their partners, and in their activities aimed at developing tourism in a given area. Constant tightening of relations between entities of the tourism economy is perceived as an element of building a competitive edge, but also often as a kind of panacea for the negative impact of crisis situations on tourism, which includes the COVID-19 pandemic. Some of the processes and relations of the tourism market during the COVID-19 pandemic were subject to strong turbulences, both in terms of supply and demand. Thus, there is an urgent need to search for new methods and techniques assessing the functioning of entities in the tourism economy—to whom a key role in the development of the tourism economy at the regional level is assigned.

The above-mentioned phenomena and the problems of the broadly defined tourism sphere are particularly and clearly manifested in various types of organizations operating in the areas of tourist reception, which also include DMOs—such as the regional tourism organizations operating in Poland. It should be emphasized that, so far, RTOs in Poland have not been the subject of in-depth research into changes in these organizations caused by external factors, including such strong (and mainly negative) factors as the COVID-19 pandemic. This, therefore, makes this research significant, not only in a scientific, but also in a pragmatic sense. The existing, and few, studies of Polish DMOs at the regional level have focused mainly on the assessment of the effects of the COVID-19 pandemic on the current activities of the organization (mainly in the area of marketing and operational activities) [1]. On the other hand, the issue of assessing the degree and nature of the impact of crisis phenomena, such as the COVID-19 pandemic, specifically the relationship of ROTs with ordinary members of the organization, as well as with the close and distant environment, has not been addressed so far. Thus, these are a current challenge for researchers and experts. The importance of the research in question also stems from the fact that Polish DMOs at the regional level are strongly differentiated in terms of quality and quantity. This is due to a very long process of their creation (specifically the 2000-2007 period), and a different degree of organizational maturity, which was formed over a period of 20 years during their operation in Poland. Importantly, Polish RTOs are, at present, expecting changes in their functioning, due to the planned reformation of the formal and legal foundations of their operation, alongside the Polish Tourist Organization (which is the classic NTO, i.e., National Tourism Organization) and local tourist organizations (DMOs at the local level).

2. Literature Review

2.1. Stakeholders in Tourism

Tourism is a complex system that brings together a number of entities involved in its development. Stakeholders are closely related to the tourism economy. In general, stakeholders are entities that can have an impact on, and may be affected by, the results of a tourism organization’s goals [2]. The main groups of stakeholders include: residents, tourists, economic entities, tourism decision makers, and destination management organizations [3]. Stakeholders play a particularly important role in the shaping of the modern tourism economy. This is largely due to the complex nature of tourism and its interdisciplinarity [4]. Without the support of stakeholders operating in a given region (destination), it is difficult to develop tourism in a given form [5]. The last 25 years have seen an increase in research and analysis on stakeholder involvement in tourism planning and development [6].

Relationships between stakeholders influencing the shape of tourism economy requires development of applicable rules. This, in turn, implies taking specific actions by many entities, including those not directly related to tourism, such as residents [7]. There are, relatively speaking, many problems related to the involvement of stakeholders in the development of tourism in a given destination. In many cases this is due to the limited nature of the relationship between the public and private sectors [8]. An important factor limiting cooperation between individual stakeholder groups is the lack of appropriate institutional structures, which in turn hinders their participation in the tourism management process [9]. This, in turn, implies other challenges, such as the selection of a leader responsible for tourism management in a given region [10].

The complexity and dynamics of the relationship between stakeholders’ [11] results, inter alia, from differences in development perspectives or adopted goals [12] is an important distinction. Regardless of the different approaches and different goals of specific groups of stakeholders, it can be assumed that there is quite a lot of agreement as to the role of tourism in the development of individual destinations, especially in areas where economic development is based on tourism [13]. This results in the need to involve various groups of stakeholders, as it is a particularly important element of effective management of a tourist destination [14]. One should be aware that the level of stakeholder engagement may (and should be) different, depending on the impact and importance of individual entities [15]. Regardless, stakeholder involvement should take place at all stages of tourism destination management [16].

Destination management organizations (DMOs) play an important role in shaping the relationship between the stakeholders. These organizations are responsible for developing strategies tailored to the expectations of all members of the tourism management system, and, in particular, to individual stakeholder groups [17]. Through their activities, DMOs can contribute to a measurable success of the tourism sphere in a given destination. These DMOs’ activities include not only external activities (such as marketing), but also internal ones, i.e., the coordination of stakeholder activities. These may be both external stakeholders, who are not members of the organization, and internal stakeholders, who are formal members of the organization; therefore, they can participate in the implementation of the organization’s projects [18]. Internal stakeholders are of particular importance as they have a real influence on the direct activities of the organization. Their ideas and initiatives may contribute not only to the creation and strengthening of appropriate relations in the organization, but may also have an impact on shaping the directions of activities, thereby boosting the development of tourism in the region.

2.2. Impact of COVID-19 on Tourism

The multidimensional shock caused by the COVID-19 pandemic should be considered globally, as it has resulted in dramatic and structural changes in various sectors [19]. This is especially discernable in the tourism industry, where virtually every subsector has suffered from the effects of the pandemic [20]. In the pre-pandemic decade, tourism development had been very dynamic [21], and it was suddenly stopped. The COVID-19 pandemic turned out to be the most severe crisis in the history of tourism development and has completely changed the market situation [22]. Global tourism in 2020 was recorded as one of the largest drops in history: the number of international tourist trips fell by as much as 74% compared to the previous year, which translates to over 1 billion fewer tourists than in 2019. The decline in tourism revenues has been USD 1.3 trillion, which is over 11 times more than during the global economic crisis of 2009 [23]. One can say that the COVID-19 pandemic has put tourism into a state of “forced hibernation” [24]. Currently, it is not possible to estimate the scope of the COVID-19 impact on tourism, as the course and duration of the pandemic are both still unknown and unpredictable [25].

Despite the drastic changes on the tourism market, there are voices pointing to a new “face” of tourism, and changes in the challenges facing tourism. Some researchers assume that the pandemic caused only a temporary inhibition of previously occurring phenomena of overtourism and overcrowding of tourism destinations [26]. It is estimated that the impact of the pandemic was varied, depending on tourism form. The return of the tourism industry to the pre-COVID-19 state will be linked to the form of participation proposed to tourists [27,28,29]. The pandemic had many unprecedented consequences, including influencing tourists’ lifestyles, behaviors, and travel patterns [30]. The COVID-19 pandemic also resulted in other, often unfavorable, consequences, such as, creating a negative image of traveling [31]. There has also been a general increase in mental disorders caused by isolation, including an increased sense of anxiety, which has had an impact on the frequency and form of people’s participation in tourism [32,33]. The image of a tourist destination may be constantly changing, and the COVID-19 pandemic may have a significant impact on its further shaping [34].

All the above-mentioned phenomena contribute to the emergence of many new challenges. The COVID-19 pandemic also offers the potential to “reevaluate” tourism development plans [35]. The situation that has arisen may also be a starting point for in-depth reflections [36] and for a revision of tourism development plans. This calls for a verification, and even making far-reaching changes in the activities of entities that are responsible both for the development of tourism and for creating an appropriate image of the destination. First of all, tourism organizations must adapt their activities to the changing reality resulting from the COVID-19 pandemic. These entities have to deal with maintaining a proper image, and, in a wider context, restoring the situation from before the pandemic. Moreover, new challenges result not only from the destructive nature of the pandemic, but also from the creation of “teaching effects” by organizations, e.g., in terms of the emergence of new activity patterns [37]. It is assumed that tourism organizations responsible for developing tourism will adopt extensive growth strategies in the near future to revitalize the tourism industry and meet the reshaping demand [26]. In order to make up for the losses incurred during the current crisis, it will be necessary for the tourism sector to increase their marketing activities [38] and to develop a systemic approach to these activities at many organizational levels [39]. As a result of limiting many forms of international and domestic tourism, competition between entities operating within the tourism market may also intensify [40]. In order to adapt to the new reality, an important role is played by changes in the supply and demand side of the tourism economy caused by the COVID-19 pandemic. For example, travelers’ tendencies to avoid a number of international travel destination types should prompt DMOs to take appropriate measures to, for example, promote domestic tourism [41]. The components of tourism offers, or products expected by tourists—who increasingly look for destinations (including accommodation facilities or attractions) that guarantee a sense of security (mainly sanitary and epidemiological) on the basis of national or regional voucher systems, certification, and recommendation with active participation of DMOs at various levels—are also changing [1]. What is important is that travelers, as a result of concerns about contracting SARS-CoV-2, will cancel or delay their trips (up until the last minute), in line with the spread of news about the scale of the pandemic in a given destination. This poses a serious challenge for tourism organizers, for example, in terms of travel insurance, or for DMOs in terms of promotion. DMOs must be agile and flexible in their actions in order to counteract a decline in demand or an imbalance in supply [25]. In addition, entities offering tourist services were also obliged by regional authorities to suspend their business for fear of a growing epidemic threat—both from tourists and employees of these entities [27]. Moreover, building the resilience of the tourism industry (i.e., stabilization of demand and supply) in the pandemic and post-pandemic period will require a government response, and the implementation of technological innovations or being part of the local structures of tourism management (including DMOs), which will facilitate restoring the confidence of consumers in tourism services [28]. The changes caused by the COVID-19 pandemic are the starting point for reflecting on a new tourism model, especially on a regional scale. Therefore, DMOs will be forced to reorient their marketing strategies [42,43].

2.3. Idea of Regional Structures in Tourism

The structures responsible for the development of tourism have a long history. They are created and developed at various levels of administration. In this respect, significant importance is assigned to regional structures. However, it should be clearly emphasized that the precise definition and identification of the regional structures that are responsible for tourism is fundamentally difficult [44]. This is due to many reasons, including difficulties in defining the term “region” [45], or in insufficient recognition of regional tourism phenomenon [46]. Regardless, it can be concluded that regional tourism management systems include many entities that are organizing and managing tourism in a given region [47]. The creation and shaping of regional tourism structures take place when the appropriate administrative division in a given country allows it, or when the appropriate local structures decide to consolidate forces and together create appropriate entities implementing tourism goals in a destination. However, it should be remembered that regional tourism entities are often subject to the influence, actions, and decisions of national structures [48].

The system of regional tourism structures is complex. In addition to traditional local self-governments, nowadays, in most European countries, the so-called regional tourism organizations (RTOs) are the most prominent. In broader terms, in most destinations the structures responsible for regional tourism take the form of public–private partnerships [49]. The experience of many countries shows that this form of tourism organization in the region is considered effective, and thus contributes to the achievement of many tangible benefits, e.g., in terms of risk diversification [50] or joint in decision making [51]. Hence, in many cases, efforts are made to “delegate” many tourism powers to RTOs [52]. The scope of activities within RTOs’ structures is quite diverse, although in the literature it is most often assumed that they are entities responsible for the marketing of a concentrated tourist area [53]. A special role of RTOs should be seen in the development of integrated tourist offerings in a region with the use of the 8Ps of marketing mix (product, price, promotion, place, people, partnerships, programming, and packaging) [54]. Nevertheless, it is more and more often reported that the scope of activities of these entities is wider. This is due to the fact that regional structures in tourism are constantly evolving, which results in changes within the scope of their tasks, the degree of responsibility [55], and the delegation of tasks to other entities [56]. Generally, the most important task of RTOs is the focus on two fields: destination development (by supporting entrepreneurship in the field of tourism or the development of regional tourism infrastructure) and destination marketing (through promotion, image management, or Internet activity management) [57]. RTOs are strongly oriented towards shaping tourism, and, at the same time, aware of their role in conducting this. This is largely due to the extensive relationship with the private sector [58]. The tasks facing regional DMOs are inherently quite difficult, due to the fact they represent specific alliances that involve giving up a certain level of autonomy and power [59]. Research conducted on regional structures in tourism clearly shows that this area has still not been properly penetrated and requires further, in-depth analyses [60]. This issue is important as it results from the dynamic changes taking place within tourism and its organizational structures. Additionally, it is determined by the direct relationship between the analyzed structures and the regional economic policy [61].

2.4. Organization of Tourism in Poland

In Polish tourism, during various stages of its historical development, numerous introductions and the forming of new organizational systems of tourism have been observed [62]. The current system of organizing tourism in Poland was introduced following the patterns applied in many European Union countries [63] and is identical with the territorial division of the country. In 2000, three types of structures were distinguished, i.e., the Polish Tourism Organization, who act as the national tourism organization (NTO); regional tourism organizations (RTOs), who are responsible for the promotion of tourism at the regional level; and local tourism organizations (LTOs), who perform parallel functions at the local level [64]. Currently, there are 16 regional tourism organizations in Poland (in all regions, i.e., provinces) and approx. 125 local tourism organizations.

The Polish Tourism Organization is mainly responsible for promoting the country. Its statutory tasks also include: ensuring the functioning and development of the Polish tourism information system in the country and in the world; initiating, giving opinions, and supporting plans for the development and modernization of tourist infrastructure; and inspiring the creation of regional and local tourism organizations [65]. Regional tourism organizations (RTOs) and local tourism organizations (LTOs) perform similar functions, but at lower levels of the country’s territorial division. Their main tasks include: tourist promotion of their area of operation; supporting the functioning and development of tourist information; initiating, giving opinions and supporting plans for the development and modernization of tourist infrastructure; and cooperation with the Polish Tourism Organization [65]. In general, the division of tasks and responsibilities in the field of tourism, which are adopted and binding in Poland, is similar to the solutions in force in other countries, and, by definition, these entities fulfill the functions of DMOs at various levels of administration [44,66,67,68,69].

In addition, the national tourism administration (NTA) is responsible for strategic tasks resulting from the adopted tourism policy of the country. Its functions are currently performed by the Ministry of Economic Development, Labor and Technology. The indicated ministry, following the example of other countries, is responsible for general tasks related to creating development and indicating directions for the promotion of tourism, as well as the development, implementation, and monitoring of tourism programs or in handling matters related to the country’s tourism development [70]. In addition, it should be mentioned that, apart from the entities mentioned, there are a number of other organizations in Poland that influence the general shape of the organization of tourism systems in the country, including: tourism chambers, tourist associations, local government units, and others [64].

Generally, the tourism management system that is adopted, and in force, in Poland indicates a relatively orderly division of tasks and responsibilities between individual entities at various levels of administration. At the same time, new opportunities for shaping the development of the tourism economy that have emerged as a result of the country’s three-tier territorial division are a challenge for all participants in the tourism management process, i.e., public sector entities, private sector partners, and non-profit institutions [71]. The 21-year history of organizational structures in Polish tourism shows that they have already reached a certain maturity [72]. Nevertheless, these structures also require some kind of “reorganization”, which results from many problems such as forms of cooperation that are implemented on a limited level [73]. In addition, relatively few scientific studies have been published in recent years to assess selected aspects of the activity of specific organizational structures in Polish tourism [74]. Hence, there is a need for detailed research in this area. Further, this is also due to the drastic changes taking place on the tourist market (including the organization network), which have been caused by the COVID-19 pandemic.

All regional tourism organizations operating within Poland are subjected to assessment from the perspective of their relations with stakeholders. RTOs were established in 2000–2006 under the Act of 25 June 1999 as enacted by the Polish Tourism Organization [64]. The number of regular RTO members is constantly growing. Since 2006, it has increased by 58.31%. RTOs, (with a total of 1584 ordinary members in 2021, 114 employees, and 141 board members), have become an important element of the tourism system in the course of the 21-year evolution of their operation [75,76,77,78]. They have even gained the status of a regional leader [52] or an instrument of regional tourism policy [79].

A brief description of the various levels of tourism management in Poland, including all types of DMOs, is a necessary background for the analysis of the research subject—which is here RTOs. The RTOs as entities have multidimensional and complex relations with the PTO (further environment) and various LTOs (closer environment) and not only with the ordinary members of organizations. These relations are also analyzed in this study.

To sum up the literature review: the importance of modern tourism management structures (based on the example of Polish organizations) was emphasized, with a simultaneous emphasis on the special role of cooperation between individual stakeholders. In the time of the COVID-19 pandemic, this issue is particularly important from the point of view of maintaining appropriate relations between stakeholders, or—as in the case of this analysis—with member entities. Considering the catastrophic impact of the COVID-19 pandemic on the entirety of the tourist environment, these relations should be examined and assessed. It can be assumed that just as the COVID-19 pandemic left its mark on the entire global tourism sector, it could also have an impact on the relationship between individual entities that make up DMOs, such as RTOs in Poland. This issue has not been studied in great detail so far. At the same time, the authors assume that a detailed analysis of changes in such relationships may be the starting point for improving the activities of DMOs in crisis situations.

The presented literature studies allowed for the formulation of the main aim of the study, which is to identify the negative and positive effects of the COVID-19 pandemic on the relations between members in a tourism organization, especially in terms of the effective fight against crisis phenomena that are not uncommon in the tourism economy. Indirect goals of the study were, in turn, to indicate the variables thus identifying the nature of RTOs’ relations with member entities and the environment during the crisis. As well as an attempt to propose a research tool (which will need to be easy to implement) that can be used to assess the nature of the relationship with the environment in other types of tourism destination management organizations at various levels.

Based on the above considerations, the following hypotheses were adopted in this study:

Hypothesis 1 (H1):

The COVID-19 pandemic has limited relationships with and activities between RTOs and organization members.

Hypothesis 2 (H2):

As a result of the COVID-19 pandemic, RTOs have revised the importance and validity of their core activities to organization members in terms of marketing and support strategies.

Hypothesis 3 (H3):

Due to restrictions, RTOs have taken or planned new or additional forms of action for organization members to reduce the adverse effects of the COVID-19 pandemic.

3. Materials and Methods

In this study, primary and secondary data were analyzed, including literature on the subject; plans and reports on RTOs activity; analytical study; data from the Central Statistical Office (Local Data Bank); and data from websites. A review of scientific publications concerning tourism stakeholders, cooperation and types of relations in the tourism economy, mainly in terms of characterizing the functioning of tourism organizations, the degree and nature of the impact of the COVID-19 pandemic on tourism, and the functioning of tourism management systems at the national and regional level was carried out. Direct research based on a diagnostic survey with the use of a questionnaire (both closed and open questions) with the use of a Google Forms application was of key methodological importance (the questionnaire form was included in the supplementary materials for the paper). The substantive components of the survey were based on previous DMOs research [73,74,75,76,77] and the process involved consultation (upon preparing the questionnaire) with experts from the Polish Tourist Organization and selected experts, who had previously performed managerial roles in DMOs. The primary study (i.e., the questionnaire) was conducted in August-September 2021 on all RTOs operating within Poland (16 organizations, whole population) with a total of 1584 members. The survey was addressed to opinion leaders in the DMOs (organization presidents and office directors, as they are the most knowledgeable people about the organization) and aggregated responses to the survey questions from all of the 16 organizations were received (i.e., no survey was rejected). The research was carried out on the basis of a questionnaire containing, in addition to the basic data of the organization (e.g., name, address, year of establishment, legal form), 19 variables, which included, among others:

• Forms of the organization’s activity (including member support strategy) in the period before and during the COVID-19 pandemic,
• The nature of the impact of the COVID-19 pandemic on the organization, especially regarding relations with members,
• Types of activities undertaken by the organization for the benefit of organization members in order to reduce the effects of the COVID-19 pandemic,
• Changes introduced in the organization’s model of activities and in the forms and types of relationships with members caused by the COVID-19 pandemic.

In order to carry out further analysis and achieve the set aim of the research, questions no.: 2, 5, 6, 8, 10–13, and 15 (see the supplementary materials) were taken into account. The selection of specific variables from the survey for extended analyses was related to the study purpose and the posed hypotheses. The variables were statistically tested in terms of their interrelationships and the correlations based on the adopted research process scheme (see Figure 1). The analysis of responses to selected questions helped to assess the relationship between the limitations in RTOs observed during the pandemic (question 8), changes in the importance of basic activities of the organization (questions 5–6), and their relationships with members (questions 11–13), which thus helped to determine whether RTOs (in view of the above) have taken (question 10) or planned (question 15) actions (and what) to reduce the effects of the pandemic for their members (which were assessed on the basis of questions 8, 5–6, 11–13) (see Figure 2). With regard to the obtained answers to the open-ended questions, a standard solution of aggregating individual responses into synthetic groups was adopted, and then the grouped responses were subjected to statistical calculations.

The formulation of the conclusions was based on the methods of deduction and comparative analysis, using the technique of describing the differences and similarities. The authors also used their own observations and experiences, as professionally active participants in the tourism management system in Poland (via the participant observation method). In order to simplify the presentation of the studied phenomena and the identified problems, the data obtained in the survey were aggregated, limiting the number of the presented observations only to the most important results:

• The importance of the activities of regional tourism organizations in the period before (BP) and during (DP) the COVID-19 pandemic;
• Forms of regional tourism organizations’ activities in the period before and during the COVID-19 pandemic, in terms of marketing activities (MA) and support strategies (SSA);
• Medians of point values broken down into variables of marketing activities (Mema) and variables of the support strategy (Mess);
• The nature of the pandemic’s impact on organizations (AR1–8—limitations of the organization’s activity, expressed by 8 partial variables), and their relations with member entities (SR1–3—structural relations-3 partial variables);
• Support for member entities during a pandemic, in terms of actions taken (AT1–8—8 partial variables) and planned actions (PA1–9—9 partial variables);
• Relationships between the impact on the activities of the organization (AR1–10), changes in relations with member entities (SR1–3), and the actions taken (AT1–8) and planned actions (PA1–9) during the COVID-19 pandemic.

For qualitative (categorized) data, the percentage of the frequency of occurrence was calculated. The results for the data on a 6-point scale (0–5 points) were presented as median ± quartile deviation (MED ± QD). The Shapiro–Wilk test did not confirm the distribution of variables’ normality (p < 0.05). The differences between the assessment of the importance of RTO activities before and during a pandemic were tested by the Wilcoxon test. For categorized variables, the χ2 Pearson test or the z-score test for two proportions was used. The relationships between the variables were assessed by the ρ-Spearman’s rank correlation coefficient with the Student’s t-significance test for the correlation coefficient. The statistical significance of the results was accepted at p < 0.05. All analyses were performed using TIBCO Statistica^® 13.3.0 (StatSoft Poland, Ltd. Kraków, Poland).

4. Results

Statistical analysis of the primary data obtained as a result of the research, allowed, within the assumed scope, to determine the measurable indicators and correlations used to evaluate the cooperation of RTOs with its member entities in Poland. The main focus was on the issues of cooperation (relations) of entities in the tourism sector in individual administrative regions of Poland, and on the comparative analysis of the activities and cooperation of RTOs—before and during the COVID-19 pandemic. The status and significance of the RTOs’ activities, both before the pandemic (BP) and during the pandemic (DP), in terms of marketing activities (MA), and support strategy activities (SSA), were assessed using the 11 types of RTO activity spheres and cooperating entities; these were then subsequently assessed on a scale of 0 to 5 points. The opinions of individual institutions regarding the type and degree of undertaken activities—before and during the COVID-19 pandemic—expressed on a 6-point scale, indicate a very similar status in terms of synthetic values. It was decided to present the research results as a continuum (before and during the COVID-19 pandemic), and in some sections there were also future implications for both analyzed periods as inextricably linked, interacting with each other, as well as allowing for comparative analyses.

Detailed research results are presented by the median of scoring, divided into marketing activity variables (Me_ma), and support strategy variables (Me_ss), as shown in

Table 1. Assessment of the importance of selected activity forms of RTOs in the period before the pandemic and during the pandemic on a 0–5 scale (median ± quartile deviation)—Wilcoxon’s test for differences.

	Before the Pandemic BP	During the Pandemic DP	MED±QD Differences	p-Value
Marketing activities (MA)
Traditional promotional activities	4.0 ± 0.5	3.0 ± 0.5	−2.0 ± 0.75	0.002
Modern promotional activities	4.0 ± 0.5	5.0 ± 0.0	0.5 ± 0.5	0.169
Tourist information	5.0 ± 0.5	3.5 ± 0.5	−0.5 ± 1.0	0.012
Service reservation	1.0 ± 1.75	2.5 ± 2.0	0.0 ± 1.25	0.441
Product development	4.0 ± 0.5	4.0 ± 0.5	−0.5 ± 0.5	0.024
Support strategy activities (SSA)
Planning of tourism development	4.0 ± 0.25	4.0 ± 0.75	0.0 ± 0.75	0.959
Development of human resources	4.0 ± 0.0	4.0 ± 0.75	0.0 ± 0.75	0.767
Development of ICT	4.0 ± 1.5	5.0 ± 0.5	1.0 ± 0.5	0.008
Crisis management	2.5 ± 0.75	4.5 ± 1.0	1.5 ± 0.75	0.003
Cooperation with the environment	5.0 ± 0.5	5.0 ± 0.5	0.0 ± 0.0	0.345
Promoting the idea of sustainable development	4.0 ± 0.75	4.0 ± 0.75	0.0 ± 0.5	0.477

MED—Median; QD—quartile deviation; and statistical significance at p < 0.05. Source: own elaboration based on surveys.

. With regard to the various forms of activity of the surveyed organizations that were implemented before the COVID-19 pandemic, the distinguishing indicators were characterized by the following spheres: cooperation with the environment and relations with stakeholders (Me_ma = 5.0); tourist information (Me_ma = 5.0); and product development (Me_ma = 4.0). The lowest values of the indicators were characteristic of such forms of the RTOs’ booking tourist services (Me_ma = 1.0) and crisis management (Me_ss = 2.5).

During the COVID-19 pandemic, a substantial change in the significance and intensity of many directions of the surveyed organizations’ activities is noticeable, especially in what were the previously dominant spheres, now in favor of activities that were—in many cases—complementary or secondary before the pandemic. Among the distinguishing indicators of the importance of the forms of RTOs’ activity in the pandemic period, actions in the field of support strategies were noted. Marketing activities were characterized by lower values of indicators. The highest rates (Me_ma = 5.0) in the sphere of RTOs’ activities during the pandemic were characterized by modern promotional activities, as well as cooperation with the environment and relations with stakeholders (Me_ss = 5.0), as well as the development of information systems and technologies (Me_ss = 5.0). It should be clearly emphasized here that the values of indicators of the surveyed RTOs, in terms of member and the environment support strategy, definitely exceeded the values of indicators for marketing activities (including for the benefit of RTOs members). These values being, respectively, at the level of: SSA = (Me_ss = 4.0–5.0), MA = (Me_ma = 2.5–5.0).

The assessment of the importance of selected RTOs’ activity forms, both before the pandemic and during the COVID-19 pandemic, is presented in Table 1. During the pandemic (according to the respondents’ assessments) there was a significant decrease in the importance of RTOs’ marketing activities related to traditional promotional activities (p = 0.002), tourist information (p = 0.012), and the development of tourism products (p = 0.024). Compared to the period before the pandemic, the importance of the strategy of supporting the development of technologies, information systems (p = 0.008), and crisis management (p = 0.003) in the pandemic period was rated higher. The significance of other forms of RTOs’ activity was assessed as similar in both analyzed periods (p > 0.05).

Most RTOs identified the negative effects of the COVID-19 pandemic (AR1–8) on their activities and their relations with the environment (SR1–3), both administrative and social, i.e., 62.5% of responses. It should be noted that a quarter of organizations do not see changes in their relations with the closer and more distant environment, and therefore in their own activities, which would be a consequence of the impact of the pandemic (see Figure 3). Only one out of six organizations that declared no adverse impact from the pandemic reported no limitations or restraints during this period. Two organizations assessed the impact of the pandemic on their activities as positive, but both indicated a few limitations that constituted, albeit to a small extent, a negative impact of the pandemic on their functioning.

Among the total indicated limitations (AR1–8) (see Figure 3), resulting from the pandemic, which accompanied contacts and the relations of the organization with the environment and their core activities, the most frequently indicated limitation was the number of markets where activities were taken (AR4 = 88%, p < 0.001), limited financing of the organization’s activities (AR1 = 56%, p > 0.05), and limitation of activities in the area of pro-tourism training (AR7 = 50%, p > 0.05). Most RTOs found no impact of the pandemic on employment (AR2 = 19%, p < 0.001) or cooperation with the environment (AR6 = 31%, p = 0.034).

In the majority of the studied RTOs, pandemic conditions did not result in significant changes in the relations with member entities (SR1–3). In terms of three specific spheres: general relations (SR1), the number of members (SR2), and membership fees (SR3) similar indications of the surveyed organizations were recorded, thus defining the impact of the pandemic at a neutral level. In the highest dimension, the lack of impact of the COVID-19 pandemic on inter-subject relations in RTOs was determined in terms of general relations (SR1 = 62.5% of responses). On the other hand, the increase in the level of relations under the influence of the pandemic was indicated by the surveyed organizations most often in terms of the change in the number of members (SR2 = 37.5% of responses). No significant deterioration of the RTOs’ relationship with member entities was observed, save for the observed reduction in the amount of membership fees as a result of the pandemic (SR3 = 44%, p > 0.05).

The most common activities undertaken by RTOs in supporting members (AT1–8) were free promotional activities for members. This was assessed at the maximum rate (AT4 = 100%) and also the organization of the trainings (AT3 = 87.5%) (see Figure 4). In the case of other activities undertaken by the surveyed organizations for and within mutual relations with member entities, the indicators did not exceed 50%. Most of the organizations did not reduce the cost of providing their own services for their members (AT5 = 6.3%) or the amount of membership fees (AT2 = 31.3%), and did not implement assistance in the preparation of applications for commercially available subsidies under pandemic conditions (AT7 = 12.5%).

In terms of the “return to normal”, all RTOs declared planning from three to nine activities (PA1–9) in the area of cooperation with member entities (see Figure 4). Among the distinguishing indicators of the surveyed organizations, the activities of intensifying cooperation and increasing support in the activities of member entities (PA1 and PA3, respectively = 93.8%) dominated. Nearly 90% of activities planned by the surveyed organizations to strengthen the level of relations between member entities were focused on the spheres of emphasizing the importance of cooperation with stakeholders (PA4 = 87.5%) and creating new areas and forms of support (PA7 = 87.5%). In the remaining cases of cooperation-type activities planned by RTOs with the external environment, similar to the activities already undertaken, the lowest value of the financial indicators was observed, which was specified by only half of the surveyed entities as “additional financial support”—PA5 = 50%.

Different types of activities undertaken (AT1–8) and planned (PA1–9) by RTOs did not significantly correlate with the indicated effects of the pandemic (AR1–10 p > 0.05 for χ2 tests). The conducted analyses verified the relationship between the number of declared actions (AT1–8) and planned actions (PA1–9)—on a scale from 0 to 9, according to Figure 2—as well as the intensity of the negative impact of the pandemic on cooperation with members and the environment (AR1–8; SR1–3) (Figure 3). The intensity of the pandemic’s impact on the activity of RTOs (AR1–8) was assessed by the sum of the restrictions (the number of restrictions from 0 to 8, according to Figure 4) and the sum of changes in relations with member entities (SR1–3)—on a scale of −3 for negative changes in each of the 3 tested areas to +3 for positive changes in each of the 3 tested areas, according to Figure 3. In Figure 5, the graphs on the diagonal of the diagram matrix show the distribution of the values of variables that were included in the cross-correlation analysis. The dispersion of values against the straight trend line for most correlations between individual variables indicates their poor, or indeed no, covariance. The values of the Spearman’s rank coefficients (ρ) were included only in those charts that showed significant correlations between the variables. A relationship was observed between the increase in the number of limitations in the RTOs’ activity (AR1–8) and unfavorable changes in relations with members (SR1–3) (ρ = −0.52, p = 0.037), while positive changes in these relations (SR1–3) correlated with a larger number of planned activities to improve cooperation (PA1–9) (ρ = 0.51, p = 0.045). However, the relationship between the number of actions taken by RTOs (AT1–8) and the adverse effects of the pandemic (AR1–8) identified by them has not been confirmed (see Figure 5).

5. Discussion and Conclusions

Focusing on cooperation is inscribed in the functional core of modern tourism organizations in the economy; it is based on knowledge and competences [73,80] and becomes particularly important in the event of emergence of crisis phenomena (i.e., pandemics, acts of terrorism, overtourism, and natural disasters). Additionally, the requirement of comprehensive cooperation, included in the philosophy of each organization operating within the tourist services sector, results from the core offer that these organizations present to their clients or members. Additionally, the paradigm of a modern organization (also often operating as a tourism enterprise), emphasizing the need to cooperate with its members and other business partners, thereby co-creating an offer (here, a regional tourist product) for the client, seems obvious [73].

The role of DMOs in times of crisis is particularly important, which was demonstrated in this study. These organizations, including the studied RTOs, have been shown to engage with and support their stakeholders, both internal and external [81], which at the same time contradicts Hypothesis 1. It has been falsified for most types of relationships and forms of activity for the benefit of organization members. Only the negative impact of the COVID-19 pandemic on the number of markets for the RTOs’ marketing activities, conducted in cooperation with members of the organization, was confirmed. These activities must be planned and require both time and close coordination to avoid potential conflicts with stakeholders [82].

The functioning of DMOs in crisis situations should also accelerate the transition from the traditional dimension of the organization (M—marketing) to the concept of DMOs understood through the prism of “management” [44]; in other words, the transition from destination marketing to destination management [83]. This was confirmed in the conducted studies, which showed that during the COVID-19 pandemic the surveyed organizations put more emphasis on strictly nonmarketing activities (see Hypothesis 2), thereby focusing their attention on the operational activities of the RTOs for the benefit of members via destination management in crisis conditions. Thus, it seems necessary to justify the change in the philosophy of the DMOs’ operation, with a transition from intervention through promotion to coordination of stakeholder activities in areas of common interest [84]. This, at the same time, corresponds with Hypothesis 3 (which is confirmed in the research) i.e., about the existing limitations in the undertaking or planning by RTOs’ new or additional forms of activities; this being for the benefit of organization members in order to reduce the adverse effects of the COVID-19 pandemic. As a consequence, DMOs and stakeholders can contribute to maximizing mutual benefits [85].

The results of the research obtained by the authors also confirm other analyses, e.g., references [39,86,87] carried out so far that relate to changes in DMOs under the conditions of the COVID-19 pandemic, which also corresponds to the adopted and achieved main goal of the study. This resulted in destination management organizations’ (DMO) and policymakers’ interventions in the tourism industry, for instance by providing stimulus payments to the tourism industry, or by restricting mobility and ordering business closures [39]. Research carried out by Kuščeret et al. [86] confirm the involvement of DMOs in the process of reviving tourism. Organizations are expected not only to provide tangible help (such as applying for subsidies, advertising, or promotion), but also to support cooperation between stakeholders. According to Pillmayer et al. [87], DMOs will often focus on short-term goals, including operations and stakeholder management. In a context of constant time pressure and a reluctance to take high risks, there is little time for dealing with long-term strategic issues, such as innovation management and related organizational approaches. Nevertheless, this research has shown that the planned activities in the context of stakeholder support are far-reaching and go beyond those currently implemented. Hence, the scope of cooperation between DMOs and stakeholders will play an increasingly important role [88].

5.1. Theoretical Implications

In destination management, interactions between complex networks of public and private stakeholders cocreate value [89,90]. The selection and involvement of individual stakeholders determines the final shape of tourism management system in a destination, and a special role in this respect is assigned to DMOs. A DMO’s governance model determines its ability to catalyze broad-based participatory stakeholder decision making [91]. Hence, DMOs can, and should, be required to be fully involved in the process of creating a competitive destination, together with all stakeholders. This process should also take into account crisis situations that are faced by modern tourism.

The conducted analysis clearly confirmed the importance of cooperation in the tourism sector and in the organizations representing it. At the same time, the research made it possible to identify the key variables describing the nature of the relationship of RTOs with members and the environment in the period of crisis, which is in line with the adopted intermediate goal of the study. The deliberations in this paper complement the considerations related to crisis management in the tourism industry so far, especially in the context of the impact of the COVID-19 pandemic on tourism [1,39,92,93]. This is even more important, as nowadays, given the global outbreak of the COVID-19 pandemic and the economic downturn faced by many countries, crisis management has again attracted organizational and research attention [20,94]. In particular, this paper fills the theoretical gap related to the involvement of destination management organizations in relationships with stakeholders in the time of the COVID-19 pandemic. It indicates the directions of activities that can be used by other researchers in the context of supporting stakeholders via DMOs and other tourism organizations.

In addition, the obtained results may be a starting point for wider research in the field of building organizational resilience in regard to the impact of crisis phenomena. This issue seems to be of particular importance to the tourism and hotel industry, as achieving organizational resilience when a sudden crisis or a disaster occurs is important for the sustained growth of tourism organizations [95]. Resilience frameworks can be used to better understand vulnerability to crises and disasters at the planning and prevention phase. However, it can also help us to better understand response strategies and future planning (i.e., in building future resilience) [96]. Additionally, organizations should consider crisis and disaster management resilience as an important part of their culture [97]. Therefore, the research results may contribute to further attempts to develop original, new concepts, relating to building relationships between destination management organizations and stakeholders. This issue seems to be important not only from the COVID-19 pandemic perspective, but also in other potential crisis situations.

5.2. Practical Implications

The negative impact of the COVID-19 pandemic on the functioning of RTOs, in terms of their relations with member entities (here: joint marketing activities for members of the organization), revealed in the research, provokes reflection. Therefore, urgent actions by RTOs—aimed at developing multidirectional principles of cooperation and shaping relations with members of tourism organizations during crisis phenomena (that are not, as stated before, uncommon cases in the tourism economy)—are necessary. RTOs must adapt their activities to the changing reality resulting from the COVID-19 pandemic, while struggling to maintain a proper image, and in a wider context, to restore the prepandemic situation. Contemporary travelers’ tendency to avoid a number of types of destinations, and forms of international travel (also regarding COVID-19 threats) should persuade RTOs to take appropriate measures to strengthen the promotion of domestic tourism, including those based on intensified relations with their members.

Against the backdrop of the literature review, it is also worth noting that the methods and techniques for assessing relations with DMO members in the event of crisis phenomena are few and based mainly on survey research, which implies difficulties in obtaining a representative sample of empirical research respondents (who are often reluctant to express an opinion). Nevertheless, the methodology and technique of researching the functional relationships within an organization during the COVID-19 pandemic, adopted by the authors, can be implemented in the organizational practice in RTOs, or in other organizations responsible for development of tourism in the region, due to their functionality, nearly zero costs, and simplicity of implementation (thus one of the intermediate objectives of the study was successfully implemented).

5.3. Limitations and Further Research

This study has some limitations, because in-depth considerations focus on the analyses of only a few selected variables (out of a total of 21 in the survey), but the obtained results can be considered an interesting basis for comparative analyses of the nature of relations with members of other types of organizations (i.e., DMOs) acting for the development of tourism at the local or regional level. This paper is based on the subjective opinions of RTOs’ representatives, nevertheless, the opinions obtained from this group of stakeholders allowed this study to capture the overall approach of the organization to shaping relations with members in times of crises in the tourism economy, including those caused by phenomena such as the COVID-19 pandemic.

There is a need to broaden the spectrum of assessing the quality of relations between tourism organizations (including RTOs or other types of DMOs) with the tourism economy stakeholders, which is now becoming a strategic goal of researchers from many scientific disciplines. This is justified in the light of the results of available research and empirical analyses, which show that relations in organizations are perceived as a phenomenon (feature) shaping the position of an organization, its specific brand, and are often also treated as an indicator of its effectiveness and efficiency. Nevertheless, while exercising caution in inference, it can also be indicated that the study and assessment of these relationships in tourism organizations with a smaller scale of activity (or, in any case, less numerous) are often marginalized. An interesting research challenge in the near future is also the assessment of the impact of other random crisis phenomena—such as wars or natural disasters—which drastically limit the development of many tourism spheres, on tourism organizations and membership relations. Searching for the synergy of tourism stakeholders’ interests (as concentrated in organizations) in crisis situations in the environment, should become a priority for the entire tourism industry, including researchers studying DMOs.