*Article* **Changes in DMO's Orientation and Tools to Support Organizations in the Era of the COVID-19 Pandemic**

**Wojciech Fedyk <sup>1</sup> , Mariusz Sołtysik <sup>1</sup> , Justyna Bagi ´nska 2,\* , Mateusz Ziemba <sup>3</sup> , Małgorzata Kołodziej <sup>4</sup> and Jacek Borzyszkowski <sup>5</sup>**


**Abstract:** Following the COVID-19 pandemic, the tourism industry has been hit by the biggest crisis in its history. Its effects are visible throughout the tourism industry, including the management system (DMOs). The study aim is to the determine the changes that have been taking place in the operation of the destination management organizations (DMOs) in Poland as a result, including the usage of existing or expected organizational support tools. The study consisted of three stages: desk research, diagnostic survey, and qualitative and statistical analyses. Empirical data from all 16 regional DMOs in Poland were collected, including the use and effectiveness of the anti-crisis assistance programs, expectations towards the support tools, actions taken to mitigate the pandemic effects, and the changes in selected marketing activities and support strategies in the pre- and postpandemic period. The study results indicated the insufficient availability of tools supporting the organizations' activities during a pandemic and little use by the DMOs of most of the tools offered by the anti-crisis programs, alongside a moderate assessment of their effectiveness. The need to modify anti-crisis programs and/or expand them to include other forms of assistance available to the DMOs was identified. The proposed research tool can be implemented to assess the necessary actions taken during the crisis in other types of tourism organizations in various regions.

**Keywords:** tourism; COVID-19; impact; DMO; support tools

### **1. Introduction**

Since early 2020, the coronavirus (COVID-19) pandemic has affected all aspects of human life [1]. This is especially discernable in the tourism industry, where virtually every sub-sector has suffered from the effects of the pandemic [2]. In the decade before the pandemic, tourism development was very dynamic [3], and it was suddenly stopped. The COVID-19 pandemic turned out to be the most severe crisis in the history of tourism development and completely changed the market situation [4]. Since March 2020, tourism businesses have been facing difficulties in a dynamic and uncertain environment. The COVID-19 pandemic reality should be considered as a factor of uncertainty, which translates into a "bleak picture" of tourism and thus a less favorable economic situation for the entities providing tourism services [5]. The impact of the COVID-19 on the tourism industry has unquestionably been huge. For example, airlines have ceased flights in countries significantly affected by the coronavirus and have grounded their fleet as they suspended operations [6]. Similarly, hotels (and the hospitality sector in general) have witnessed a decline in occupancy rates, and in a few cases, discrimination against Chinese nationals

**Citation:** Fedyk, W.; Sołtysik, M.; Bagi ´nska, J.; Ziemba, M.; Kołodziej, M.; Borzyszkowski, J. Changes in DMO's Orientation and Tools to Support Organizations in the Era of the COVID-19 Pandemic. *Sustainability* **2022**, *14*, 11611. https://doi.org/10.3390/ su141811611

Academic Editor: J. Andres Coca-Stefaniak

Received: 16 August 2022 Accepted: 13 September 2022 Published: 15 September 2022

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**Copyright:** © 2022 by the authors. Licensee MDPI, Basel, Switzerland. This article is an open access article distributed under the terms and conditions of the Creative Commons Attribution (CC BY) license (https:// creativecommons.org/licenses/by/ 4.0/).

was stated [7]. The effect of the pandemic is also evidenced in the events sector as mega events, including the Olympic Games, have been cancelled and postponed. Researchers estimate that the effects on tourism risk perceptions, destination marketing, and crisis management will be long-lasting even after the pandemic is controlled [8].

Coping with various, often unpredictable, events is a big challenge for a destination. This also applies to the impact of the COVID-19 pandemic. Therefore, considerable attention is paid to the functioning of individual destinations during the crisis. The key aspect relating to the operation of a destination is the participation of the different groups interested in its development, i.e., the stakeholders. The extent of the collaboration of tourism businesses with one another, their employees, and other stakeholders, such as destination management organizations (DMOs) and disaster management professionals, will also play a role [9]. This issue has become particularly important in recent years, including during the COVID-19 pandemic, and many destinations and tourism entities have a lot of catching up to do in this regard. Although all stakeholders must be involved in the process of creating destination resilience, a special role should certainly be played by the entities created to manage tourism, i.e., destination management organizations (DMOs) [10]. DMOs and tourism organizations can promote effective destination marketing by implementing appropriate risk communication strategies according to the crisis stage of the region [11]. Destination management organizations, while they typically operate proactively in the realm of marketing, are also responsible for taking a leadership role during and after a time of crisis to help the local tourism industry react to and recover from the event [12].

Therefore, it seems appropriate to pay attention to the impact of the COVID-19 pandemic on the functioning of DMOs. These organizations play an important role in creating the tourism function and development of individual destinations. It is also worth remembering that the main function of a DMO is to coordinate stakeholder efforts toward a shared vision [13]. The ability to carry out this task is determined by the quantity and the quality of the contacts the DMO has with local stakeholders and the governmental agencies [14]. In this regard, it can be assumed that the COVID-19 pandemic, which is affecting DMOs, will also affect the functioning of the entire destination, including the individual companies operating in its area. This is in line with Blackman et al. [15], who highlight the importance of DMOs in supporting the organizational learning of local tourism businesses, but who, concurrently, identify the complexity of the tourism industry, its diversity, and its managerial conservatism as critical impediments of organizational learning.

Against the background of the above considerations, the aim of the study was to determine the nature of the changes that took place in the operation of DMOs under the influence of crisis phenomena—in this case the COVID-19 pandemic, including through the existing or expected support tools in the closer and more distant environment of the organizations in Poland. Identification of the nature of the changes caused by COVID-19 in the DMOs' operating systems, which is the aim of the study, is of key importance for indicating the directions and features of the necessary evolution of tourism management systems in a given region in order to increase the competitiveness of regional tourism. The practical purpose of this study was also to propose an implementable research tool for the analysis of the necessary operational activities that should be undertaken in crisis conditions in other types of tourism organizations in the regions. Polish DMOs are already mature organizations, and they are currently waiting for transformation (including the currently processed formal and legal changes regarding the system of collecting and redistributing the tourist tax). Moreover, DMOs and the government administration in the field of tourism expect the development of tools allowing for the modification of management methods. Taking this into account, further studies of DMOs (regional and local) are also necessary, especially those covering the issues of the detailed determination of their new operational roles in the post-pandemic period.

The issue of the changes in the orientation of DMOs caused by crisis phenomena in a turbulent environment is marginalized by researchers, and the existing research focuses mainly on the general assumptions and models of operation related to the preparation of DMOs for crisis situations [10,15]. In the last two years, scientists' interest in the impact of COVID-19 on the tourism sector has clearly increased [2,11], but such studies often ignored the role of DMOs. This study is an attempt to fill the knowledge gap and the research gap in assessing the degree of adaptation of tourism organizations in response to various types of crises, which may be of significant importance in building the resilience of DMOs and tourist destinations [9,12]. It is important because in the current situation it is impossible to predict the subsequent analogous crisis phenomena which are characteristic of VUCA (Volatility—Uncertainty—Complexity—Ambiguity) surroundings [5].

#### **2. Literature Review**

The focus on cooperation is the operational and functional core of modern tourism organizations in an economy based on knowledge and competence and managed by knowledge [16,17], and it becomes particularly important in the event of the emergence of crisis phenomena (i.e., pandemics, acts of terrorism, overtourism, natural disasters) in a turbulent tourism environment. Compulsory multi-directional cooperation should be included in the philosophy of the operational activity of each organization of the tourism sphere in times of crisis [18], especially in relation to those entities that act for the benefit of many types of stakeholders and play key roles; these are often regional leaders in the tourism management system at the regional level [19,20] or a specific instrument of regional tourism policy [21]. In addition, such types of organizations undoubtedly include destination management organizations (DMOs) [22], including Polish regional tourism organizations [23–25].

What is important is that DMOs are assigned many strategic roles and goals [26,27] which determine the forms and directions of the organizations' activities in cooperation with internal and external stakeholders in the region [28–30]. At the same time, it is worth emphasizing that the current uncertainty or instability in the operation of DMOs was mainly the result of the pragmatic concerns of the organizations [31,32], including such variables as the amount of membership fees and the sources of financing, the number of members, the level of obtained external subsidies, the stability of the management board, etc., and this has not been fully verified (excluding single case studies—see: [33,34]) by the highly influential random events, including the global COVID-19 pandemic. In a tourism economy where only uncertainty is certain [35], knowledge becomes a key source of sustainable competitive advantage [17,36] (especially when the phenomena in the tourism environment are random or highly destructive, such as the COVID-19 pandemic [37]). Thus, research on the regional structures operating in tourism clearly indicates that this area has still not been properly penetrated and requires further in-depth analysis [38,39], especially in the face of the challenges of the modern tourism economy, which requires a sustainable evolution of the DMOs' operation [40–42], often simultaneously with crisis phenomena in the environment [43].

The COVID-19 pandemic has prompted the need for different types of DMO interventions, either by regional tourism decision makers or tourism policy institutions [6,44]. The stakeholders of regional tourism markets who assemble in DMOs must cooperate and join forces in order to develop resilience in tourism, including during the COVID-19 pandemic [18]. DMOs, as destination management organizations, are atypical organizations for various reasons, but what one should pay attention to is the fact that their activities are also assessed according to their organizational effectiveness and efficiency [45], including supporting their own members and stakeholders in the region.

It should be emphasized that due to their position in tourism management systems in regions, DMOs often take the roles of precursors of operational activities and initiators of the implementation of new types of support tools for the stakeholders of the regional tourism market in the fight against the negative impact of crisis phenomena [46]. Restrictions in the sphere of organization, the handling of tourist traffic, or the promotion of tourism in regions caused by the COVID-19 pandemic, in a specific way forced the need to look for procedures, technologies, or operational instruments, referred to as crisis driver

innovations [47], in order to survive and continue the activities of the tourism market entities (including DMOs and their members). In an emergency, DMOs must undergo an organizational metamorphosis to survive the crisis of the COVID-19 pandemic and develop further, in order to be more flexible, inventive, and original in action [34,46]. In a crisis situation, DMOs must be involved in the internal and external support of their stakeholders (often small entrepreneurs and organizations from many tourism sectors), which requires coordination to ensure the coherence and effectiveness of action [27,48]. The communication of DMOs with members of the organization, stakeholders of the tourism economy, and tourists is also crucial in the time of the COVID-19 pandemic [49]. These activities must be planned, and they require both time and close coordination to avoid potential conflicts with stakeholders [50]. It seems necessary to change the philosophy of the DMOs' operations, with a transition from intervention, through promotion, to coordination of stakeholder activities in areas of common interest [51]. As a consequence, DMOs and stakeholders can contribute to maximizing mutual benefits [52].

It is assumed that the 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 [53]. In order to make up for the losses incurred during the current crisis, it will be necessary for the tourism sector to increase its marketing activities [54] and develop a systemic approach to these activities at many organizational levels [6]. For example, the travelers' tendency to avoid a number of international travel destination types should prompt DMOs to take appropriate measures to, for example, promote domestic tourism [55]. The changes caused by the COVID-19 pandemic are the starting points for reflection on a new tourism model, especially on a regional scale. DMOs will be forced to reorient their marketing strategies [56,57].

To conclude the above considerations, it is worth confirming that the COVID-19 pandemic clearly influenced the functioning of the entire tourism sector [58–60], and it has largely affected DMOs as well [33]. Therefore, it seems justified to research and analyze the impact of the pandemic on DMOs, as well as on the anti-crisis measures taken by these organizations. It should be remembered that such actions are (or could have been) taken at various times during the pandemic, e.g., during the lockdown or immediately after it [61], which to a large extent could have diversified both the scope and the scale of the undertaken projects. This can be seen, for example, in the context of crisis communication. For example, at an early stage, the DMO should provide visitors with accurate and upto-date information. In the medium term, marketing campaigns can effectively generate a positive message in the media. Finally, in the final stage, it becomes important to restore the image of the destination and provide relevant information to reassure tourists and rebuild confidence in traveling [62–64].

The literature review presented above fits in with the subject matter of this study. First of all, it concerns the most important issues relating to the importance of DMOs in the contemporary tourism market, including the scope of their activities [22,26,27]. Researchers rightly emphasize the dominant role of DMOs in creating the tourism function [13,24]. Such a role can also be expected from DMOs in the context of specific crisis situations [13,46]. It is particularly important in the field of the DMOs' relationship networks with their internal and external stakeholders [49]. Functioning in the time of the COVID-19 pandemic or other crises affects the scope of activities of an organization [33]; this is often the result of limited possibilities, e.g., financial or organizational possibilities. This affects practically all spheres of an organization's functioning, and even its philosophy [51]. Therefore, there is a need for in-depth analyses and considerations that would indicate the needs and expectations of these organizations in terms of support from the external environment. There are no such studies in the scientific literature, and the vast majority relating to the activity of DMOs in crisis situations is related to the undertaken [49], proposed, or expected actions [56,57]. It can be assumed that this study to a large extent fills the gap related to the needs of DMOs in the era of functioning in specific crisis situations. Contrary to many previously published studies, this work focuses on the expectations of the organizations.

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

**Hypothesis 1.** *As a result of the COVID-19 pandemic, the organizations modified their priorities and revised their ventures, and thus, the importance of marketing activities and the elements of the support strategy in the assessment of DMOs changed*. **Hypothesis 1.** *As a result of the COVID-19 pandemic, the organizations modified their priorities and revised their ventures, and thus, the importance of marketing activities and the elements of the support strategy in the assessment of DMOs changed.* 

nal environment. There are no such studies in the scientific literature, and the vast majority relating to the activity of DMOs in crisis situations is related to the undertaken [49], proposed, or expected actions [56,57]. It can be assumed that this study to a large extent fills the gap related to the needs of DMOs in the era of functioning in specific crisis situations. Contrary to many previously published studies, this work focuses on the expecta-

**Hypothesis 2.** *During the COVID-19 pandemic, DMOs made effective use of external support tools that were common and widely available*. **Hypothesis 2.** *During the COVID-19 pandemic, DMOs made effective use of external support tools that were common and widely available.* 

**Hypothesis 3.** *DMOs expect external support tools to mitigate the effects of the COVID-19 pandemic, provided they are dedicated to them*. **Hypothesis 3.** *DMOs expect external support tools to mitigate the effects of the COVID-19 pandemic, provided they are dedicated to them.*

#### **3. Materials and Methods 3. Materials and Methods**

tions of the organizations.

The research process was divided into three stages with the use of multidirectional analyses and the operation scheme presented in Figure 1 below. The research process was divided into three stages with the use of multidirectional analyses and the operation scheme presented in Figure 1 below.

*Sustainability* **2022**, *14*, 11611 5 of 20

**Figure 1.** Graphical scheme of study design. Source: own elaboration. **Figure 1.** Graphical scheme of study design. Source: own elaboration.

In this study, primary and secondary data were analyzed, including the literature on the subject, the plans and reports on DMO activity, analytical study, data from the Central Statistical Office [65], and data from websites. A review of the scientific publications was made on the real and postulated directions of the development of DMOs; the areas and tools of cooperation of DMOs with the environment in the tourism economy, mainly in terms of the characteristics of their functioning (operational and marketing activities); the degree and nature of the impact of the COVID-19 pandemic on tourism; and the functioning of the management systems of tourism at the regional level with the participation of DMOs. Direct research based on a diagnostic survey with the use of a questionnaire (with both closed and open questions) with the use of the Google Forms application was of key In this study, primary and secondary data were analyzed, including the literature on the subject, the plans and reports on DMO activity, analytical study, data from the Central Statistical Office [65], and data from websites. A review of the scientific publications was made on the real and postulated directions of the development of DMOs; the areas and tools of cooperation of DMOs with the environment in the tourism economy, mainly in terms of the characteristics of their functioning (operational and marketing activities); the degree and nature of the impact of the COVID-19 pandemic on tourism; and the functioning of the management systems of tourism at the regional level with the participation of DMOs. Direct research based on a diagnostic survey with the use of a questionnaire (with both closed and open questions) with the use of the 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 DMO research (see [25,29,32,39]) 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 (questionnaire) was conducted in August–September 2021 on all DMOs operating in Poland (16 organizations, whole

population) with a total of 1,504 members. There was no sampling as the research covered the entire population of DMOs in Poland, and all obtained questionnaires (fully completed according to the questions and cafeteria responses) were qualified for statistical analyses. 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, and legal form), substantive issues in the fields of, among others, the DMOs' activities limiting the effects of the COVID-19 pandemic, the importance of anti-crisis measures in the future, changes in the organizations' orientation towards anti-crisis tools—before and after the pandemic—and the level of the use, availability, and effectiveness of external support, as well as the DMOs' expectations in this respect on the part of entities from the immediate and further environment.

In order to carry out further analysis and achieve the set aim of the research, question numbers 6, 9, 16, 17, 18, 19, 20, and 21 (see the Supplementary Materials) were taken into account. 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 (participant observation method). In order to simplify the presentation of the studied phenomena and identified problems, the data obtained in the survey were aggregated, limiting the number of the presented observations only to the most important results.

The analysis covered the respondents' answers regarding the available elements of the anti-crisis assistance program, which were used by organizations during the COVID-19 pandemic; the overall assessment of the effectiveness of these programs and solutions for the activities of the DMOs; the expectations regarding the support of other entities; and the actions taken to reduce the effects of the crisis related to the pandemic. In the description of the analyzed research issues, measurable synthetic indicators were used:


For the above indices, the response differentiation coefficient was calculated as the ratio of the standard deviation to the mean percentage of the individual indications and adopted as the dispersion index (DI). For the qualitative (categorized) data, the frequency of occurrence (%) was calculated, and for the leading research issues, the significance of the structure indicator was checked using the Z-test for one proportion.

The results for the data on a 5-point scale (1–5 points) were presented as median ± quartile deviation (MED ± QD). The Shapiro–Wilk test did not confirm the normality of the distribution of the variables (*p* < 0.05). The relationships between the variables were assessed by the 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.

According to the recommendations of Ferguson [66] for the correlation of data from social sciences, the values of Spearman's coefficient in the range of 0.20 ≤ ρ < 0.50 were adopted as values characterizing the effect size of "practical" significance, for 0.50 ≤ ρ < 0.80 the effect was assessed as moderate and for ρ ≥ 0.80 as strong. The differences between the dependent variables were checked by the Wilcoxon test. The statistical significance of the results was accepted at *p* < 0.05. All analyses were performed using TIBCOStatistica® 13.3.0 (StatSoft Poland Ltd., Kraków, Poland).

#### **4. Results**

The statistical analysis of the primary data obtained as a result of the research allowed, within the assumed scope, the determination of the measurable indicators for the identification of the changes in the orientation of the surveyed DMOs resulting from the impact of the pandemic on their activities and the assessment of the organizational support tools used in terms of internal and external systems.

The total values of the DMOs' indications in relation to the measures taken to minimize the effects of the pandemic (expressed by the internal actions index—Iai) were at the level of Iai = 55%, with the dispersion index value—DI = 71%. The most common actions taken by organizations to reduce the effects of the crisis related to the pandemic included more detailed ongoing monitoring and analysis of the situation on the tourism market, indicated by all organizations (100%) as standard but also priority action in crisis situations, as well as the implementation of training systems to support tourism with the use of e-learning, undertaken by 94% of the surveyed organizations. A high implementation rate (in the structure of the DMOs' activities, intended to limit the negative impact of the pandemic on their functioning) was also indicated in the case of the changing of the rules and techniques for maintaining relationships with members of the organization (88%) and closer cooperation with other entities—75% (Figure 2). None of the surveyed organizations, both in their actual and their planned activities, took into account changes in their own organizational structure. Moreover, to a small extent, efforts were made to increase expenditure on the activities of the organization and to increase the number of markets—activities declared in both cases by 13% of organizations (Figure 2). The number of activities undertaken by the organization did not correlate with the number of support elements used, nor with the number of expectations regarding the support of other entities (ρ < 0.20).

The assessments of the surveyed organizations regarding the importance of selected forms of activities planned for implementation in a post-pandemic situation (expressed by the Iaspa index = 88%; DI = 11%) indicate significant changes in their orientation, both in terms of marketing activities and support strategies. The results of detailed analyses of the opinions of the DMOs (defined on a scale of 0–5 for individual activities) indicate the dominant role of activities focusing on modern promotion in the near future (including, among others: guerilla marketing, viral marketing, e-mail marketing, and social media marketing). This type of future activity was indicated by all the surveyed organizations to the highest degree (MED ± QD = 5.0 ± 0.0—on a 5-point scale). In the assessment of the marketing activities and support strategies, all organizations also indicated, as the leading form, cooperation with the environment (MED ± QD = 5.0 ± 0.0), with a noted, slightly lower score (98%—the maximum value; DI = 10.3%) and in order of importance—development of technology and reservation systems—96% (respectively, MED ± QD = 5.0 ± 0.0; DI = 11.3%). A high, over 90% degree of evaluation of the importance of post-pandemic activities was also recorded in the case of the development of tourism products, the planning of tourism development and human resources development, and the education and improvement of the quality of the tourist staff. Traditional promotional activities were rated the lowest—68% (MED ± QD = 3.5 ± 1.0) of the maximum point value and with a relatively high degree of differentiation (DI = 34.0%), followed by the crisis management strategy (78%; MED ± QD = 4.0 ± 0.75) and the reservation of services (75%; MED ± QD = 4.0 ± 0.5) (Table 1). The overall assessment of the future importance

of the support strategy was higher than the assessment of the importance of marketing activities (*p* = 0.034). The revealed values of the DMOs' indications, in terms of assessing the importance of the planned marketing and strategic activities, prove a relatively similar direction of their planned organizational and management proceedings in the post-pandemic period. However, the dispersion index (DI) values of the point values of the indications (from DI = 0% to DI = 34.0%), noted in the case of the evaluation of the individual forms of activities, turn out not to confirm, despite a low level, the consistency of the surveyed organizations in this regard. *Sustainability* **2022**, *14*, 11611 8 of 20

**Figure 2.** Actions taken by Polish DMOs to limit the effects of the crisis related to the COVID-19 pandemic. Source: own elaboration based on the survey. **Figure 2.** Actions taken by Polish DMOs to limit the effects of the crisis related to the COVID-19 pandemic. Source: own elaboration based on the survey.

The assessments of the surveyed organizations regarding the importance of selected **Table 1.** Assessment of the significance of selected forms of DMO activities in the future (for the years 2022–2023) against the background of the effects of the COVID-19 pandemic (on a scale of 0–5 points).


form, cooperation with the environment (MED ± QD = 5.0 ± 0.0), with a noted, slightly lower score (98%—the maximum value; DI = 10.3%) and in order of importance—devel-MED—median; QD—quartile deviation; overall assessment—median of partial assessments. Source: own elaboration based on the survey.

opment of technology and reservation systems—96% (respectively, MED ± QD = 5.0 ± 0.0; DI = 11.3%). A high, over 90% degree of evaluation of the importance of post-pandemic activities was also recorded in the case of the development of tourism products, the plan-An extremely important issue that could show in a very real dimension the changes in the orientation of DMOs—including their philosophies of operation and the practical solutions in the organizations' operating models, caused by the COVID-19 pandemic, but

ning of tourism development and human resources development, and the education and improvement of the quality of the tourist staff. Traditional promotional activities were

relatively high degree of differentiation (DI = 34.0%), followed by the crisis management strategy (78%; MED ± QD = 4.0 ± 0.75) and the reservation of services (75%; MED ± QD = 4.0 ± 0.5) (Table 1). The overall assessment of the future importance of the support strategy was higher than the assessment of the importance of marketing activities (*p* = 0.034). The revealed values of the DMOs' indications, in terms of assessing the importance of the planned marketing and strategic activities, prove a relatively similar direction of their planned organizational and management proceedings in the post-pandemic period. However, the dispersion index (DI) values of the point values of the indications (from DI = 0% to DI = 34.0%), noted in the case of the evaluation of the individual forms of activities, turn

also in the potential threats of other crises—was to identify the differences in the assessment of the significance of the selected activities after the pandemic and the assessment of their significance before the COVID-19 pandemic (Figure 3). The sizes of the differences in the assessment of the importance of the activities in both periods were determined using the measurable reorientation index (Ir). The reorientation index (Ir) in this case ranged from −16.3% to 37.5%. The highest values of differences were recorded in the scope of such forms of activities as the booking of tourist services (Ir = 37.5%); crisis management (Ir = 32.5%); and the development of technologies and information systems (Ir = 26.3%). *Sustainability* **2022**, *14*, 11611 10 of 20

**Figure 3.** Assessment of the importance of selected activity forms of DMOs in the period before the pandemic and after the pandemic on a 0–5 scale—Wilcoxon's test for differences. Source: own elab-**Figure 3.** Assessment of the importance of selected activity forms of DMOs in the period before the pandemic and after the pandemic on a 0–5 scale—Wilcoxon's test for differences. Source: own elaboration based on the survey.

oration based on the survey. The qualitative assessments related to the organizational reorientation in the areas of philosophy of action and practical solutions in potential crisis situations constituted a significant supplement to the observed changes in the meaning of the action mechanisms, as defined by the DMOs. Among the majority of the surveyed organizations, no reevaluation of the status of cooperation with the closer and more distant environment, due to the Only traditional promotional activities (Ir = −16.3%), according to the organization's assessment, and tourist information (Ir = −1.3) lost their importance after the pandemic compared to the previous period. For the remaining forms, for which the differences in assessments were significant, their importance increased after the pandemic, and the reorientation index did not exceed the value of 20%. The only form of activity whose significance value did not change as a result of the impact of the pandemic was cooperation with the environment (Ir = 0%).

COVID-19 pandemic, was observed. No changes in the current operating philosophy were confirmed by 60% of the organizations. The most frequently indicated changes in this area, as declared by the organizations, were remodeling and adaptation to potential crisis conditions; remodeling and adaptation of leading organizational documents (statute and budget); intensification of cooperation with the environment in the form of increasing activities in the digital space; and increasing the participation of structural and external entities in the fields of conceptualization, coordination, and implementation of promotional and development projects. Contrary to the sphere of the philosophy of action, the changes in the field of future solutions, in particular the prevention or the minimizing of the effects of crises (including The qualitative assessments related to the organizational reorientation in the areas of philosophy of action and practical solutions in potential crisis situations constituted a significant supplement to the observed changes in the meaning of the action mechanisms, as defined by the DMOs. Among the majority of the surveyed organizations, no reevaluation of the status of cooperation with the closer and more distant environment, due to the COVID-19 pandemic, was observed. No changes in the current operating philosophy were confirmed by 60% of the organizations. The most frequently indicated changes in this area, as declared by the organizations, were remodeling and adaptation to potential crisis conditions; remodeling and adaptation of leading organizational documents (statute and budget); intensification of cooperation with the environment in the form of increasing activities in the digital space; and increasing the participation of structural and external

COVID-19), were confirmed in the future by the majority of organizations (60%). Among

tation and intensification of financial mechanisms, both external and internal (in the system and at the national, regional, and local level of the DMOs); the legal and procedural support for domestic tourism market entities; the standardization and stabilization of business operations based on fixed assumptions which were also realistic in relation to potential crisis situations; and the increasing and intensifying of the structure of the mar-

The assessment of the availability, use, and effectiveness of external support tools for reducing the effects of the COVID-19 pandemic was described using measurable synthetic indicators showing both the frequency of the DMOs' indications in terms of individual

keting activities, both at the institutional level and at the tourist destination level.

entities in the fields of conceptualization, coordination, and implementation of promotional and development projects.

Contrary to the sphere of the philosophy of action, the changes in the field of future solutions, in particular the prevention or the minimizing of the effects of crises (including COVID-19), were confirmed in the future by the majority of organizations (60%). Among the most frequently presented proposals for solutions that may increase the possibilities and speed of the response to crisis situations by DMOs in the future were the implementation and intensification of financial mechanisms, both external and internal (in the system and at the national, regional, and local level of the DMOs); the legal and procedural support for domestic tourism market entities; the standardization and stabilization of business operations based on fixed assumptions which were also realistic in relation to potential crisis situations; and the increasing and intensifying of the structure of the marketing activities, both at the institutional level and at the tourist destination level.

The assessment of the availability, use, and effectiveness of external support tools for reducing the effects of the COVID-19 pandemic was described using measurable synthetic indicators showing both the frequency of the DMOs' indications in terms of individual issues and their value on a point scale. The total values of the organizations' indications were presented using the external support utilization index (Iues), the external support unavailability index (Ilaex), and the external support effectiveness index (Iese). All the indices were calculated and reported as percentages.

Table 2 shows the degree of use and the assessment of the effectiveness of the individual elements of the anti-crisis programs available for DMOs. Most of the support elements (from 9 to 13 elements) indicated in Table 2 did not apply to five of the organizations. One of the organizations did not indicate any element of support that would apply to it. The synthetic indicator of the use of external support (Iues) was at a significantly low level, Iues = 11.5%, and at the same time, there was a very strong differentiation of the indications of the organizations confirming the use of any form of support tools (DI = 207.3%). A definitely distinctive tool that all the DMOs used (in the regions where they were available) were the exemptions from social security contributions. The remaining support tools had the participation of only a small fraction of the organizations and were incidental in nature, oscillating in these cases at the level of 1% of the indications.

The indicator of the lack of availability of support (Ilaex) was at the level of Ilaex = 28.4% (DI = 34.4%). Among the most frequently mentioned forms of external support, which the DMOs expected to use in the regions of their operations and which they did not obtain due to their unavailability, the following were distinguished in particular: co-financing for the costs of running a business—44%; non-returnable loans—38%; and funds from state support, e.g., a financial shield—38%.

The results of the detailed analyses of the opinions of the DMOs (defined on a scale of 0–5 for the effectiveness of the individual tools) indicate an average level of their evaluation. In synthetic terms, it was determined by the value of the external support effectiveness indicator, Iese = 56.1%, with the differentiation of the indications, DI = 14.4%. The exemptions from social security contributions were defined by the surveyed DMOs as the dominant external support tool, the effectiveness of which was also rated the highest among the other anti-crisis programs and solutions available in a given area for the organization and its members (76.3% of the maximum value of indications and the highest median values: MED ± QD = 4.0 ± 1.0). Only three organizations benefited from the co-financing of wages and funds from the so-called "financial shield" or other forms of state support. Despite the fact that the organizations did not use the other indicated elements of the anti-crisis assistance programs, they assessed their effectiveness at a similar level, as the median of the scores was 3 for all of them (Table 2). None of the organizations indicated the reasons for not using particular forms of support (the answer was not obligatory). No relationship was found between the number of support elements used and the total assessment of their effectiveness (ρ = −0.07, *p* = 0.811).


**Table 2.** Scale of use and availability of anti-crisis programs for DMOs and evaluation of their effectiveness.

Source: own elaboration based on the survey.

Against the background of the scale of use, availability, and effectiveness of the support tools used during the COVID-19 pandemic to reduce its effects, an assessment was also made of the expectations of the DMOs in relation to the potential sources for obtaining them; those sources were public, private, and social. The values of the indications of the surveyed organizations indicate a significant demand of the organization for numerous forms of anti-crisis assistance, especially from direct and indirect supreme institutions, such as those of the local and central government administrations. The synthetic index determined for the purpose of assessing the analyzed features (Ieres—index of expectations regarding external support) reached the level of Ieres = 53%, with a strong dispersion of readings at DI = 66.8%.

Among the expectations regarding support from other entities, all the DMOs indicated the need for support from the regional government (100%). The next most frequently indicated entities from whom aid was expected were the government and/or the Ministry of Tourism and the National Tourist Organization (93.8%) and the institutions operating the EU aid funds (87.5%). The least frequently indicated by the DMOs as sources of expected aid for counteracting the COVID-19 pandemic were private persons, local tourist organizations, and other entities (Figure 4). In the case of these sources, the values of the indications among the DMOs did not exceed 25%. A statistically significant and moderate relationship was confirmed between the number of entities indicated by the organizations that were expected to receive support and the number of elements of anti-crisis assistance programs that did not apply to a given organization (were not available for it) (ρ = 0.51, *p* = 0.044). A slightly weaker and negative relationship was observed between the number of expected support forms and the number of used forms of anti-crisis aid (ρ = −0.42, *p* = 0.103).

environment. Source: own elaboration based on the survey.

impact on the data from the social sciences [66].

**Figure 4.** Expectations of Polish DMOs in terms of support from entities in the close and distant **Figure 4.** Expectations of Polish DMOs in terms of support from entities in the close and distant environment. Source: own elaboration based on the survey.

moderate relationship was confirmed between the number of entities indicated by the organizations that were expected to receive support and the number of elements of anticrisis assistance programs that did not apply to a given organization (were not available for it) (ρ = 0.51, *p* = 0.044). A slightly weaker and negative relationship was observed between the number of expected support forms and the number of used forms of anti-crisis

Despite the lack of statistical significance of this correlation, the value of the Spearman coefficient exceeded the minimum effect size representing a "practically" significant

**5. Discussion**  The COVID-19 pandemic evidently shook the tourism economy around the world Despite the lack of statistical significance of this correlation, the value of the Spearman coefficient exceeded the minimum effect size representing a "practically" significant impact on the data from the social sciences [66].

#### [58–60]; this resulted in a parallel boom in scientific research [67], which was subject to the **5. Discussion**

aid (ρ = −0.42, *p* = 0.103).

need for in-depth reflection—here, it was more about the amount of research time and distance—when assessing the nature of the impact of the pandemic on the tourism sphere or its local operators, such as DMOs and tourism industry stakeholders. The research conducted among all 16 regional DMOs in Poland seems to confirm the opinions and position of the many researchers talking about the reorientation of the or-The COVID-19 pandemic evidently shook the tourism economy around the world [58–60]; this resulted in a parallel boom in scientific research [67], which was subject to the need for in-depth reflection—here, it was more about the amount of research time and distance when assessing the nature of the impact of the pandemic on the tourism sphere or its local operators, such as DMOs and tourism industry stakeholders.

ganizations' activities. Based on the analyses, it has been shown (see Hypothesis 1) that as a result of the COVID-19 pandemic the importance of actions and support strategy elements in the assessment of the DMOs has changed. For most of the activities specified in the research, significant changes were found in the assessment of their significance, as confirmed by the results of the organizations' opinions, both in terms of the number of indications and the score value. The organizations modified their priorities and thus revised the implemented and planned activities. First of all, it is noticeable that the importance of the projects in the field of the support strategies is growing. This confirms the opinions of many scientists about the need and change of orientation of the studied or-The research conducted among all 16 regional DMOs in Poland seems to confirm the opinions and position of the many researchers talking about the reorientation of the organizations' activities. Based on the analyses, it has been shown (see Hypothesis 1) that as a result of the COVID-19 pandemic the importance of actions and support strategy elements in the assessment of the DMOs has changed. For most of the activities specified in the research, significant changes were found in the assessment of their significance, as confirmed by the results of the organizations' opinions, both in terms of the number of indications and the score value. The organizations modified their priorities and thus revised the implemented and planned activities. First of all, it is noticeable that the importance of the projects in the field of the support strategies is growing. This confirms the opinions of many scientists about the need and change of orientation of the studied organizations [51].

ganizations [51]. The crisis in the tourism environment caused by the COVID-19 pandemic accelerated the process of the DMOs' own evolution towards the concept of DM and MO (destination management and marketing organization). DMOs also prompted the expansion of support activities and an integrated approach, which covered various areas of intervention at the management level [68], or they implemented remedial strategies in the tourism economy [40,69]. The crisis caused by COVID-19 also forced the need to adapt (or even

change) the tourism management model in the DMOs' systems and their adaptation to the requirements of new times and new phenomena [51]. The obtained results of the research conducted among Polish DMOs clearly confirmed the growing importance of activities in the field of crisis management. At the same time, it is worth mentioning another sphere of activities, namely that relating to cooperation with the environment, including stakeholders. These activities were highly rated even before the pandemic, and the importance of this factor was confirmed by the DMOs' plans for the coming years. These organizations have been shown to engage with and support both their internal and their external stakeholders [48]. These activities must be planned, and they require both time and close coordination to avoid potential conflicts with stakeholders [50]. Taking into account the above deliberations and the survey results, a conclusion can be drawn about the urgent need to amend the catalog of roles (established by statutory norms in Poland) that should be performed by regional DMOs in times of crisis. This catalog should be established in consultation with the practitioners employed in DMOs and the scientific community, with the support of key system stakeholders.

The proposed changes are also a confirmation of previous research relating to both the change in the orientation of the DMOs and the need to adapt the organizations to the changing market conditions, especially in crisis situations. DMOs need to adapt their marketing and management strategies to the rapid changes and uncertainties in the COVID-19 period, including using stakeholder management theories and agile thinking in order to be more flexible in crisis periods [70] post-pandemic; it is also necessary to open up to an innovative solution for the DMOs' operation strategies, including the use of new technologies [71] or even a digital communication strategy with members and the environment [72]. Developing the catalog of the DMOs' e-support tools (including its members), such as e-learning training or hybrid conferences, is a need of the moment, and as shown by the conducted research, DMOs expect them in the regions. It is also necessary for DMOs to look for patterns to follow in the benchmarking formula [73] to introduce support tools that will allow the industry to respond faster and more effectively to crisis phenomena in regional tourism and its components. For example, the COVID-19 pandemic has "brought to their knees" the organizers of the meetings industry in cities and destinations and at the same time has caused changes in the ITC tools used in DMC activities in the MICE sector [73]. Therefore, it seems necessary to involve the scientific community and business and management practitioners in the search for good practices in tourist-developed destinations in the field of anti-crisis actions and then implement them in the organizational practices of Polish DMOs.

At the same time, when referring to the received and expected support by the surveyed organizations, quite significant differences in the declarations of the DMOs can be noticed. The results of the observations and the conducted analyses did not allow the confirmation of the effective use of the available support tools by the Polish DMOs (see Hypothesis 2). Obviously, this does not mean that these organizations are reluctant to accept the proposed anti-crisis solutions and instruments. In this regard (here, the low absorption of support tools), it is more likely that the regions cannot benefit from the support because in many cases the available tools were not directed directly to the DMOs, but to all market entities, including the tourism economy. Nevertheless, the surveyed DMOs clearly expect support from entities from the external environment, which refers directly to the adopted Hypothesis 3, including the observation that the lack of availability of individual elements of anti-crisis programs or the low level of their use by DMOs determined a greater number of indicated entities, from which support was expected.

It is worth mentioning that although a given DMO usually plays the role of a leader in a given destination, it is not possible for this organization to deal with problems arising from specific crisis situations on its own. For example, in many cases the government or its designated agencies should take over some of the responsibilities related to, inter alia, crisis response and interventions [33]. Regardless of the administrative level at which DMOs operate (national, regional, and local), government interventions are necessary, for example, to ensure adequate resources, financial support, and the implementation of policies that may contribute to the revival of tourism [74]. Thus, DMOs do not have the legal, organizational, or financial capacity to independently solve specific problems on a regional scale. Therefore, they seek communication with regional or government authorities and institutions in situations such as the COVID-19 pandemic, which direct DMOs into the appropriate strategic directions and even legal actions [75].

In the opinion of the DMOs, the help of the government authorities in many cases is insufficient, which was also noticeable during the various phases of the COVID-19 pandemic. The responsibility of national government has often been resolved through the adopted general government tourism and communication policy. At the same time, the expectations of tourism market entities, including DMOs, are much more advanced and mainly include financial support, such as subsidies and tax breaks, which are considered to be key determinants of the revival of tourism [33]. This is certainly worrying, as the industry expects much more concrete action and a fair and effective distribution of funds during a crisis [76]. Therefore, the expectations of the surveyed DMOs seem to be right in terms of supporting their activities in many dimensions, including marketing and strategic ones. Researchers have confirmed [77] that government policy and intervention are practically essential to strengthening and further developing resilience in the time of the COVID-19 pandemic. Governments were also responsible for a quick response and the need to adapt to the existing threats [78]. During the pandemic, the government has also become a much bigger actor in the tourism economy (e.g., re-nationalization of airlines and other tourism companies and tourism infrastructure such as airports) [6]. This is quite unique for COVID-19, as previous crises have generated research and institutional interest, but they did not have policy impact, particularly on tourism [59]. The issue to be resolved, however, is the scope and size of such support. Sigala [6] considers governmental interventions as 'economic support (e.g., subsidies, tax reliefs) to tourism business and employees', while Sharma et al. [18] plead for governmental stimulus packages and interventions. For Higgins-Desbiolles [76], however, tourism businesses and organizations are just about always eager to return back to "normal" by accepting governmental interventions and stimulus packages, leading to questions regarding their fairness, effectiveness, and distribution. The scope of intervention in this respect should, of course, be much wider [79]. The government should deliver information as far as possible to residents and tourists in order to make them feel comfortable and to gain their trust. At the same time, the government should make use of various technologies and social media channels to communicate with residents and tourists to obtain their feedback with policy responses.

Regardless of the adopted hypotheses and their verification, it can be concluded that the role of DMOs in the modern tourism economy is of key importance, and the status of the activities of these organizations has increased, especially in the difficult period of the COVID-19 pandemic [46,49,80,81]. DMOs can, or even should, be treated as the basic entities responsible for the comprehensive management of a destination, including its image [10,82]. Nowadays, DMOs play a key role in the exchange of information between stakeholders and try to manage increasingly complex relationships in their environment and in the region [83], which should be manifested in the creation of new forms of cooperation or support tools that DMOs use.

#### **6. Conclusions**

The COVID-19 pandemic has left its mark on the operation of all tourism sectors and has particularly severely destabilized the operation of regional tourism management structures, including DMOs. The need to urgently assess the impact of crisis phenomena on the functioning of DMOs was the basis for the analyses undertaken in this study. These analyses allowed for the identification of changes in the organization's orientation and also showed deficiencies in the types of operating tools and support mechanisms of the organizations, both from the internal perspective and from the environment. The key problems of DMOs today derive from the lack of dedicated support and targeted tools on the part of some entities and external systems, including the EU. Therefore, it becomes necessary to increase the involvement of tourism policy entities at different levels of the administrative division of the state, and in this regard, it is necessary to provide for the specific roles of both public and private entities in the action supporting DMOs. As shown by the conducted analyses and the literature review, DMOs have all the features and predispositions to become the most important players in the tourism market of a given destination, including in times of crisis, provided that they are supported by the broadly understood environment.

#### **7. Limitations and Further Research**

The research results contained in the study relating to the reorientation of activities, as well as the obtained and expected support by the DMOs, have specific limitations, which at the same time may define further directions of research and analysis:


The need to conduct qualitative assessments of the support activities undertaken by DMOs with the participation, or for the benefit, of members of the organization should be a strategic goal of interdisciplinary research, especially in the face of the rapidly changing conditions of the tourism sphere functioning caused by various types of crises. Future research on the specification of the roles and tasks to be performed by regional-level DMOs and the operational modes of the organizations towards stakeholders and tourist administration entities at various levels during crisis phenomena should be considered crucial. Against the background of the available sources of knowledge and the review of the scientific publications, it can be cautiously stated that the research and evaluation of the forms, tools, and instruments of support for DMOs (including its members) in crisis situations are strongly limited or even marginalized. This situation limits the chance to implement management innovations in tourism organizations [84], including those such as DMOs, which have to face the growing wave of various types of threats in the tourism economy and in the functioning of the tourism sphere in tourism reception areas. The search for the most effective and efficient support systems for tourism stakeholders (concentrated in pro-tourism organizations) in crisis situations in the environment should become a priority for the entire sphere of tourism economy entities, with the involvement of the scientific communities researching DMOs.

**Supplementary Materials:** The following supporting information can be downloaded at: https: //www.mdpi.com/article/10.3390/su141811611/su141811611/s1, File S1: Questionnaire.

**Author Contributions:** Conceptualization, W.F., M.S. and J.B. (Jacek Borzyszkowski); methodology, W.F., M.S., J.B. (Jacek Borzyszkowski) and M.K; formal analysis, W.F., M.S., J.B. (Jacek Borzyszkowski), M.K., J.B. (Justyna Bagi ´nska) and M.Z.; investigation, W.F., M.S., J.B. (Jacek Borzyszkowski), M.K., J.B. (Justyna Bagi ´nska) and M.Z.; resources, W.F., M.S. and J.B. (Jacek Borzyszkowski); writing—original draft preparation, writing—review and editing, W.F., M.S., J.B. (Jacek Borzyszkowski), M.K., J.B. (Justyna Bagi ´nska) and M.Z.; supervision, W.F., M.S. and J.B. (Jacek Borzyszkowski); project administration, W.F., M.S. and J.B. (Jacek Borzyszkowski); translations, J.B. (Justyna Bagi´nska); software, visualization, M.K. All authors have read and agreed to the published version of the manuscript.

**Funding:** This research received no external funding.

**Institutional Review Board Statement:** Not applicable.

**Informed Consent Statement:** Not applicable.

**Data Availability Statement:** Not applicable.

**Acknowledgments:** We are particularly grateful to the management of the DMOs (regional level) in Poland for supporting the research process.

**Conflicts of Interest:** The authors declare no conflict of interest.

#### **References**

