7. 3. 77 Official  Journal  of the European  Communities No C 56/1 
II 
(Preparatory  Acts) 
ECONOMIC  AND  SOCIAL  COMMITTEE 
Opinion  on the main  measures  to be taken  to help  unemployed  young  people,  women 
and elderly  workers  and  women  wishing  to resume  gainful  employment 
The opinion  of the Committee  is not based  on any  text. 
A. LEGAL  BASIS  FOR  THE  OPINION 
At its 138th  plenary  session  held  on 31 March  1976  the  Committee,  acting  on a 
proposal  from  the Bureau,  decided  to deliver  an opinion  on the abovementioned  subject 
on its own  initiative. 
B. OPINION  OF THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  prepared  its opinion  on the  above  matter  at its 
143rd  plenary  session,  held  in Brussels  on 24 and  25 November  1976, 
The full  text  of the opinion  is as follows: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE, 
Having  regard  to Article  20 (4)  of the  Rules  of 
Procedure, 
Having  regard  to the  decision  of the  Economic  and 
Social  Committee  at  its  plenary  session  of 
31 March  1976  following  a proposal  from  its Bureau, 
to deliver  on its own  iniriaoive  an opinion  on main 
measures  to be taken  to help  unemployed  young 
people,  women  and  elderly  workers  and  women 
wishing  to resume  gainful  employment, 
Having  regard  to the  decision  taken  by its Bureau 
on 30 March  1976  to recommend  that  the Section  for 
Social  Questions  be  instructed  to  draw  up  an 
opinion  on the matter, Having  regard  to the  opimion  issued  by the  Section 
for Social  Questions  at  its  meeting  held  on 
14 October  1976, 
Having  regard  to the  oral  report  made  by  Che 
rapporteur,  Mr Carroll, 
Having  regard  to the discussions  at its 143rd  plenary 
session  held  on 24 on 25 November  1976,  sitting 
of 25 November  1976, 
Whereas  the  Treaty  establishing  the  European 
Economic  Community  affirmed  as one  of its essential 
objectives  the constant  improvement  of che living  and 
working  conditions  oif the peopile; 
No C 56/2 Official  Journal  of the European  Communities 7.3.77 
Whereas  the  'right  to work'  is a basic  human  right 
as expressed  in the  European  Social  Charter,  the 
Universal  Declaration  of Human  Rights  and  the 
United  Nations  Declaration  on  t>he  Elimination  of 
Discrimination  against  Women; employed.  The  many  women  wiho  spend  all  their 
lives  looking  alfter  an aged  parent  (310  000  in the 
United  Kingdom)  and  the  problems  they  face 
financially  as well  as emotionally  should  not  be 
ignored. 
Whereas  the  Economic  and  Social  Committee  has 
consistently  fought  to improve  Jiving  and  woriking 
conditions  and  to secure  economic  and  social  justice 
for all  the  people  of the  European  Community 
without  discrimination; 
Whereas  elderly  workers,  young  people  and  women 
wishing  to  resume  employment  are  particularly 
vulnerable  in the  present  economic  crisis;  whereas 
there  is a serious  risk  that  this  state  of affairs  will 
persist  unless  adequate  action  is taken, 
HAS  UNANIMOUSLY  ADOPTED  THE  FOLLOWING 
OPINION: 1.3. It should  be pointed  out  at the  outset,  that  this 
opinion  will  deal  with  the  need  for short-term  action 
in order  to assist  those  categories  — elderly  workers, 
young  people  and  women  — who  are  particularly 
vulnerable  in the  present  crisis.  Short-term  measures 
can, however,  only  be of value  if they  are  combined 
with  long-term  measures.  Reference  must,  therefore, 
be made  to long-term  measures  also. 
1.4. There  are national  schemes  to cushion  the effect 
of unemployment  on  income.  These  vary  a great 
deal from  one  Member  State  to the  next,  ranging 
from  insurance  benefits  which  can  even  approach 
the previous  net  income  to welfare  payments  which 
are only  granted  on less-favourable  terms. 
1. INTRODUCTION 
1.1. The  worldwide  employment  crisis,  which  goes 
back  as far  as 1974,  has  not  spared  the  Member 
States  of the  Community.  The  fact  that  there  are 
five million  jobless  in the  Community  has  brought 
considerable  social,  human  and  economic  stresses. 1.5. Although  generally  speaking  unemployment 
benefit  schemes  have  been  improved  in recent  years, 
all such  financial  assistance  to the  unemployed 
entails,  in varying  degrees,  depending  on the  national 
scheme  invol  ved,  a reduction  tin income.  As the period 
of unemployment  continues,  entitlement  to such 
benefits  may  decrease  or disappear  altogether.  As a 
result,  many  jobless  persons  are,  after  a certain  time, 
compelled  to live  at near  subsistence  level. 
1.2. In actual  fact,  unemployment  figures  are 
probably  considerably  higher  than  those  given  above. 
One reason  for this  is that,  as yet,  the compilation  of 
statistics  on  unemployment  has  not  been 
standardized.  As a result,  it is not (improbable  that  in 
some  States  only  persons  in receipt  of benefits  are 
counted  as unemployed,  whilst  in others  all persons 
registering  with  official  agencies  as job-seekers  are 
included  in unemployment  statistics.  It might  be 
helpful  to indicate  both  the  percentage  of men  and 
women  registered  with  social  security  schemes  and 
the percentage  of  men  and  women  receiving 
unemployment  benefits.  Hidden  employment  exists, 
in particular,  in the case  oif those  categories  of jobless 
whose  situation  this  opinion  sets  out  to investigate 
and for  which  it seeks  to propose  specific  measures. 
Women  who  devote  their  entire  lives  to looking  after 
relatives  in need  of care  and  attention  are  a case  in 
point.  They  have  every  reason  to criticize  a society 
which  does  not  regard  them  as  being  gainfully 1.6. Sustained  high  levels  of unemployment  signify 
loss of economic  potential.  In an ever-foster  changing 
world  in  which  the  pace  of  scientific  and 
technological  progress  is constantly  increasing,  even 
unemployed  skilled  workers  find  it hard  to keep 
abreast  of new  developments.  As a result,  if, as is 
quite  possible,  there  should  again  be a manpower 
shortage,  the  skills  required  would  be unavailable, 
either  for  the  reason  given  above  or because  of a 
failure  to provide  appropriate  training. 
1.7. Furthermore,  unemployment  deprives  people  of 
a great  deal  of personal  and  social  fulfilment.  Work 
must  be recognized  as a basis  of self-esteem  and 
human  dignity.  This  puts  the  European  Community 
under  a particularly  pressing  obligation  to create  the 
bases  for  implementing  the right  to work  as laid  down 
7.3.77 Official  Journal  of the European  Communities No C 56/3 
in the European  Social  Charter  and  provided  for,  in 
fundamental  terms,  in the Treaties  of Rome. 
The right  to work  is affirmed  for example: 
I. In the European  Social  Charter: 
Article  1 — The  right  to work 
With  a view  to ensuring  tihe  effective  exercise  of 
the right  to  work,  the  contracting  parties 
undertake: 
(a) to accept  as one  olf their  primary  aims  and 
responsibilities  the achievement  and  .mainten-
ance of as high  and  stable  a level  of 
employment  as possible,  with  a view  to the 
attainment  of fulll  employment; 
(b) to protect  effectively  the right  of the worker 
to earn  his living  in an  occupation  freely 
entered  upon; 
(c) to establish  or maintain  free  employment 
services  for aill workers; 
(d) to provide  or promote  appropriate  vocational 
guidance,  training  and rehabilitation. 
II. In the  UN  Declaration  on  the  Elimination  of 
Discrimination  against  Women: 
Article  10 
1. All  appropriate  measures  shall!  be taken  to 
ensure  to women,  married  or unmarried,  equal 
rights  with  men  in the  field  of economic  and 
social  life,  and in particular: 
(a) the right  without  discrimination  on grounds 
of marital  status  or any  other  grounds,  to 
receive  vocational  training,  to work,  to free 
choice  of profession  and  employment  and  to 
professional  and vocational  advancement. 
1.8. At issue  is the question  olf equity  in employment 
and goals  which  should  be in reach  of alii residents 
of the  European  Community  — men,  women,  the 
heallthy  and  the physically  or mentally  handicapped 
— i.e.,  access  to labour  market,  the ability  to find 
and keep  jobs  and  earn  decent  incomes;  and  the 
potential  to pursue  a self-fulfilling  career  path.  The achievement  of these  goals  can  often  pose  insur-
mountable  problems;  this  is especially  true  for young 
people,  women  and  elderly  workers,  but  it also 
applies  to migrant  workers,  persons  who  are socially 
or geographically  remote  from  (the  mainstream  of 
economic  activity,  and  to the physically  or mentally 
handicapped. 
2. GENERAL  COMMENTS 
2.1. In the  light  of  the  above,  figures  for 
unemployment  among  young  persons,  women  and 
the elderly  are particularly  alarming.  Unemployment 
among  these  groups  should  always  'be considered  in 
the context  of overall!  unemployment. 
2.2. Measures  of a general  nature,  such  as job 
creation,  reductions  in the number  of people  at work 
and sharing  of the  available  work  among  more 
workers,  almost  automatically  affect  these  groups 
too. In this  connection,  reference  should  be made  to 
a numiber  of ideas,  some  of which  have  been 
discussed  earlier  iby the Committee,  though  they  did 
not receive  unanimous  approval.  These  ideas,  which 
have  not yet ail! been  acted  upon,  are as follows: 
2.2.1.  Reduction  in the number  of people  at work 
— early  retirement, 
— raising  of the sohooMeaving  age. 
2.2.2.  Sharing  of available  work  among  more 
workers 
— shorter  working  week, 
— (longer  holidays, 
— longer  leave  for workers  for training  and  further 
training, 
— restriction  of excess  working  (e.g.,  persons 
holding  two  full-time  jobs,  overtime). 
2.2.3.  But  it must  be painted  out  that  'active' 
measures  to create  jobs  are more  important  than  the 
abovementioned  measures:  job  creation  schemes  do 
not necessarily  always  cost  more  than  it does  to pay 
the workers  concerned  unemployment  (benefit.  The 
costs  involved  may  vary  considerably  from  country 
to country,  but it is important  to bear  in mind  that 
once  they  are  given  work  previously  unemployed 
workers  start  paying  taxes  and  national  insurance 
contributions.  Thus  it is not only  a social  gain,  but 
No C 56/4 Official  Journal  of the European  Communities 7. 3. 77 
also a gain  for  the  exchequer  when  a person  is 
moved  ifrom  the  unemployment  queue  into  paid 
work. 
2.2.4.  Active  measures  are  being  taken  in most  of 
the Member  States,  under  different  administrative 
and financial  arrangements. 
The following  examples  can serve  as illustrations: 
— in the  Federal  Republic  of Germany,  some 
80 000 jobless  were  given  work  at a cost  of 
DM 1 629 000  in 1975  and  1976.  The  money  was 
chiefly  spent  on public  civil  engineering  and 
building  contracts.  The  indirect  effect  of this  on 
employment  is estimated  to be as follows:  every 
100 primary  jobs  created  lead  to another  50 
vacancies  as a result  of a multiplier  effect.  In this 
way,  measures  to create  jobs  stimulate  the 
economy.  In Germany,  per capita  expenditure  on 
the unemployed  average  DM  16  000 to DM 
17 000 per  wortker,  per  annum.  This  compares 
with  the  DM  20 000 or thereabouts  per  person 
that was  spent  on the job creation  schemes, 
— a community  industry  scheme  and  job  creation 
programme  exists  in the  United  Kingdom.  The 
former  was  initiated  in 1974  and  subsequently 
expanded  to put hard-to-employ  young  people  to 
work  on projects  oif social  or environmental  value. 
The Manpower  Services  Commission  has  been 
allocated  £ 70  million  for  a job  creation 
programme  whicih  supports  the  projects  submit-
ted by local  authorities  and  voluntary  bodies, 
— the  Netherlands  has  a temporary  programme  to 
provide  employment  in government  service  for 
people  under  45 wtho  have  been  out  of work  for 
six months  or more,  and  for  people  over  45, 
even  if they  have  been  unemployed  for less  than 
four months, 
— the  Italian  trade  unions  pfl>an  to establish  an 
investment  fund  to  combat  structural  and 
regional  unemployment.  This  venture  would  be 
jointly  funded  by employers,  workers  and  the 
State, 
— in France,  the Decree  oif 14 April  1976  brought 
a major  change  in the  system  of regional 
development  aids  which  hitherto  have  been 
linked  to investment.  To provide  more  incentive 
for the creation  of jobs,  the regional  development 
grants  for  industrial  firms  are  henceforth  to be 
proportionate  to  the  number  of  new  jobs provided  and  may  vary  depending  on the  area 
and the  type  of jobs  concerned  (extension  of 
plants  or setting  up of new  plants).  The  Vocational 
grants  awarded  to certain  service  sectors  have 
ailso been  geared  exclusively  to the  number  of 
new jobs  provided. 
2.2.5.  Some  Member  States  have  special  schemes  to 
relieve  unemployment  among  young  people.  How-
ever,  to our  knowledge  no Member  State  has  a 
specific  programme  to relieve  unemployment  among 
women  or elderly  workers,  though  Denmark  and  the 
Netherlands  have  made  tentative  steps  towards  this. 
2.3. AS  REGARDS  INITIATIVES  AT  COMMUNITY 
LEVEL,  THE  FOLLOWING  SHOULD  BE 
MENTIONED: 
2.3.1.  Involvement  of the European  Social  Fund 
Aid was  granted  under  Article  4 of the  European 
Social  Fund  for  the training  or retraining  oif young 
people  under  25 with  priority  for  those  seeking 
employment  for the first  time.  The  decision  became 
operative  in August  1975  and  the  Commission  was 
able to approve  assistance  for such  schemes  totalling 
over 40 million  u.a.  by the  end  of the  year  (1). 
A further  66 million  u.a.  have  been  budgeted  for 
1976. 
2.3.2.  Implementation  of the  Social  Action  Pro-
gramme 
A number  of measures  relating  to women,  young 
people  and  elderly  workers  is recommended  which 
also includes  proposals  for  better  labour  market 
functioning,  work  environment  improvements  and 
flexibility  of working  life. 
2.3.3.  Work  being  pursued  by the Standing 
Committee  on Employment 
Community  action,  such  as recommendations  for 
the institution  of training  schemes,  is being  planned 
in the  field  of youth  employment  in cooperation 
with  the  Commission,  the  Social  Partners  and  the 
Advisory  Committee  for Vocational  Training. 
2.3.4.  Work  by the Advisory  Committee  for 
Vocational  Training 
A working  party  has  been  set up to study  questions 
of apprentice  training. 
(*) OJ  No  L 199,  30.  7. 1975. 
7. 3. 77 Official  Journal  of the European  Communities No C 56/5 
2.3.5.  Adoption  of a Directive  on implementation 
of the  principle  of equality  of treatment 
between  male  and  female  workers 
Discriminations  are  to be removed  in the  area  of 
existing  employment,  vocational  training,  promotion 
and working  conditions. 
2.3.6.  Council  Directive  on the  approximation  of 
the laws  of the  Member  States  relating  to 
collective  redundancies 
The laws  governing  large-scale  redundancies  can 
preserve  jobs  in the short  or the (longer  term  and  thus 
affect  the unemployment  situation. 
2.3.7.  Seminar  organized  by the  Commission  in 
November  1975  on vocational  guidance  and 
training  for women  workers 
2.3.8.  Expected  recommendation  as regards 
vocational  training  and  vocational  guidance 
for women 
2.3.9.  Expected  recommendation  on  vocational 
training  measures  for  unemployed  young 
people  (draft  Commission  recommendation 
on vocational  preparation  for  young  people 
who are  unemployed  or  threatened  by 
unemployment  — COM(76)  1207/3) 
2.3.10.  The  Education  Committee's  forthcoming 
conclusions  on the  preparation  for working 
life and  for transition  from  education  to work 
2.3.11.  Establishment  of a European  Centre  for the 
Development  of Vocational  Training  in Berlin 
2.3.12.  Tripartite  conferences,  at which  there  has 
been  a wide-ranging  exchange  of views  between  the 
governments,  the Commission  and  the  two  sides  of 
industry  on the economic  and  social  situation  of the 
Community. 
3. SPECIFIC  COMMENTS 
3.1. UNEMPLOYMENT  AMONG  YOUNG  PEOPLE 
3.1.1.  Unemployment  is especially  serious  among 
the Community's  young  people,  with  many  Member 
States  showing  above-average  unemployment  levels 
for this  group.  In many  Member  States  young  people who fail  to find  a job  or training  place  after 
finishing  their  schooling  are not  entitled  to financial 
assistance.  Consequently,  it is not  improbable  that 
jobless  young  people  will  not  be included  in the 
unemployment  statistics.  Unemployment  among  girls 
is even  higher  than  among  boys.  Note:  for example, 
in Germany  the  percentages  of young  people  up to 
the age  of 25 among  the tota'l  unemployed  of each 
sex were  as follows: 
Female Male 
May  1975 27-6% 23 1 % 
May  1976 28 3 % 22-2  % 
Source:  'Bundesanstalt  fur  Arbeit'  — Institut  federal  du  travail. 
3.1.2.  Unemployment  among  young  people  is due 
to two  factors:  there  are not  enough  training  places 
for school-leavers,  and  there  are not enough  jobs  for 
school-leavers  or young  people  who  have  'finished 
training.  (Note:  there  are  some  considerable  differ-
ences  in the way  the  various  Member  States  tackle 
this matter.  In Belgium  school-Heavers  are regarded  as 
having  received  sufficient  vocational  training  to make 
apprenticeships  unnecessary,  wthereas  German  school-
leavers  normally  undergo  apprenticeships). 
3.1.3.  Because  of the  shortage  olf places  in training 
centres,  admission  requirements  are  becoming  more 
and more  selective  and  demanding.  For  example,  in 
Germany  'Abitur'  (GCE  A-level)  is now  often 
required  where  the  'mittilere  Raiife'  (intermediate 
school  certificate)  used  to be enough,  and  the  'mitt-
ilere Reife'  (intermediate  school  certificate)  where 
only the  'Hauptschulabschluf?'  (elementary  school 
certificate)  used  to be required. 
3.1.4.  The  result  of this  trend  is that  by no means 
all boys  and  girls  who  have  completed  elementary 
school  receive  vocational  training,  and  those  wiith 
a Hearning  disability  or other  handicap  look  in vain 
for training. 
3.1.5.  Disadvantaged  young  peopile  of this  type  are 
entering  the  market  for  unskilled  and  semi-skiDled 
jobs,  and  are thus  deprived  of any  chance  of career 
development  right  from  the  beginning  of their 
working  'lives.  Since  the  bulk  of unemployed  are 
unskilled  or semi-skilled  and  since  these  types  of jobs 
are the  most  likely  to disappear  as a result  of 
technological  progress,  the  present  generation  of 
unemployed  young  people  without  any  training  is 
No C 56/6 Official  Journal  of the European  Communities 7. 3. 77 
likely  to form  a core  of unemployment  in the future, 
with  all the problems  this  brings  for the individuals 
concerned  and  for society.  The  European  Community 
and the  Member  States  have  in this  area  a special 
task in framing  a policy  to integrate  young  people 
and in waging  a campaign  to exptloit  the  capacity 
of young  people  to the full  and  give  them  confidence 
in their  own  future.  Unfortunately,  there  are still  too 
few people  who  are  prepared  to condemn  a social, 
economic  and  cultural  climate  in which  young  people 
do not  participate  fully  in development.  Protests 
about  vandalism,  juivenille  delinquency  and  alleged 
immoral  behaviour  by some  young  people  are  no 
substitute  (for  speaking  out  against  the  underlying 
climate. 
3.1.6.  It should  also  be pointed  out  that  in a recent 
enquiry  of the Belgian  National  Labour  Office  among 
the young  unemployed  in Belgium,  the jobless  youth 
replied  that  they  resented  their  situation.  They 
considered  that,  apart  from  the boredom,  unemploy-
ment  prejudiced  their  future  development.  The 
younger  among  the unemployed  fait  ifhat  they  were 
losing  the knowledge  they  had  gained  in school  or 
any limited  training  wthich  they  had  received  prior 
to being  on the  dele.  In a study  produced  by the 
Council  of Europe  reference  was  made  to the 
proportion  of young  people  who  expressed  a total 
lack of interest  in their  future  careers,  after  they  had 
'been  unemployed  for a certain  length  of time.  Partly, 
the blame  for the development  of this  attitude  was 
attached  to modern  means  of communication  through 
the exaggeration  of the allegedly  interesting  lives  led 
by rich  individuals,  compared  with  the  drabness  of 
the so-called  ordinary  lives.  The  contrasts  appear  to 
be so great  that  some  young  people  no longer  fed 
that it is worthwhile  making  the effort  to be wholly 
absorbed  in an occupation.  Furthermore,  research  in 
France  has shown  that  there  is a tendency  for young 
unemployed  persons  to withdraw  within  themselves, 
lose their  friends  and  their  ability  to make  and  keep 
normal  social  contacts.  The  fact  that  high  unemploy-
ment  among  young  people  can also  lead  to mounting 
social  tensions  should  be faced  as well. 
3.1.7.  A new  phenomenon  has  a'lso  emerged  in that 
some  young  people  with  degrees  also  find  themselves 
jobless  or often  condemned  to elementary  tasks. 
Graduates  can  no longer  count  on finding  a job 
commensurate  with  their  qualifications. 
3.1.8.  Most  Member  States  are  devoting  particular 
attention  to unemployment  among  young  people, 
and are making  increasing  efforts  on ittheir  behalf. 3.1.9.  The  following  examples  „ illustrate  what  is 
being  done  by the  Member  States.  It sihou'ld  be 
noted,  however,  that  the Economic  and  Social  Com-
mittee  was  unable  to study  the details  of the operation 
of the  schemes  listed  or of the  effects  they  are 
having. 
3.1.9.1.  Ireland 
In Ireland,  after  a brief  period  of instruction  in a 
vocational!  training  centre,  young  peop'le  are  being 
put to work  on community  projects  — doing  up 
old people's  homes,  improving  public  parks,  building 
children's  playgrounds  and  so on.  Something  like 
800 young  people  will  be employed  on schemes  of 
this kind  in 1976  at a total  cost  to the  public  of 
£ 450  000. 
3.1.9.2.  Federal  Republic  of Germany 
Employers  who  take  on young  people  who  have 
been  unemployed  for  at least  one  month  receive  a 
subsidy  equal  to 60%  of the standard  wage  rate  or 
training  allowance  for six months. 
Young  people  who  cannot  find  a joib  or a training 
place  in their  own  area  receive  a mobility  grant  of up 
to DM  700  if they  take  a job  or apprenticeship 
elsewhere. 
There  are  also  some  experiments  concerning  job-
training  courses  for  young  people  who,  because  of 
learning  disabilities,  cannot  cope  with  the theoretical 
part of existing  training  courses. 
The Federal  Agency  for Labour  is also  providing  job-
preparation  courses  for  school-leavers,  and  young 
people  with  less  than  one  year's  working  experience. 
They  are  designed  to help  the  young  people  to 
decide  what  they  want  to do,  thus  making  up for 
a shortage  of career  information,  or to prepare  young 
people  for  work  who  are  proWbly  not  capable  of 
following  a vocational  training  course.  Young  people 
taking  part  in  a training  scheme  receive  a 
maintenance  allowance. 
3.1.9.3.  United  Kingdom 
An emergency  package  to heflp  to reduce  the young 
unemployed  is being  considered  now  by  the 
government.  It is to include  special  training  courses 
for 10 000 young  people  and  £ 55 million  on appren-
ticeship  training.  'Critics  have  been  declaring  that  it 
is no good  taking  up an apprenticeship  if the job is 
not going  to be there  at the end  of the apprenticeship. 
7.3. 77 Official  Journal  of the European  Communities No C 56/7 
The United  Kingdom  provides  a recruitment  subsidy 
to encourage  employers  to give  preference  to young 
people  who  have  recently  letft schodl. 
Under  a recently  instituted  £ 70 million  job creation 
programme,  the UK Manpower  Services  Commission 
provides  jobs  of social  value  for the  unemployed, 
particularly  young  people. 
3.1.9.4.  France 
A series  of measures  has  been  ta'ken  to improve 
social  security  for young  job-seekers.  Young  people 
who have  obtained  certificates  of general  education, 
technical  diplomas  or degrees  are  eligible  for 
unemployment  benefit  if after  a certain  time  they 
are still  wholly  unemployed.  They  are also  covered 
free of charge  for other  social  security  benefits  as 
soon  as they  register  at the National  Employment 
Office. 
Employment  of young  people  is encouraged  by a 
jab-creation  grants  scheme  (upwards  of 30 000 new 
jobs have  been  generated  by the  scheme  in craft 
occupations)  and  through  vocational  training  schemes 
(traineeships  leading  to a qualification).  Apprentice-
ships  have  also  been  considerably  expanded. 
A Decree  of 4 June  1975  instituted  the training-job 
contract  whereby  an employer  taking  on a young 
person  under  an employment  contract  receives  a 
grant  for  the  training  he gives.  This  training  can 
range  between  120  and  500  hours  in the  case  of 
a six-month  contract  or between  500 and 1 200 hours 
in the case  of a contract  of at least  a year. Parliament  a bill containing  a package  of measures 
to reduce  unemployment  in general  and  that  among 
young  people  in particular. 
Three  related  bills  were  brought  before  Parliament 
in July  and September.  They  seek  to: 
(a) set up a national  youth  employment  fund  out of 
which  grants  for  combined  practical  and 
theoretical  training  courses  would  be awarded  by 
the regional  authorities; 
(b) provide  incentives  for firms  to take  on workers: 
firms  which  take  on workers  for an initial  period 
and keep  them  on after  that  would  be remitted 
in a decreasing  proportion  of their  social  security 
contributions  for the workers  (75%  in the first 
year,  50%  in the second  and 25%  in the third); 
(c) draft  extra  resources  into  the unemployment  fund 
to finance  regional  schemes  providing  unemployed 
young  people  with  special  temporary  jobs  in 
community  service  and  other  projects,  coupled 
with attendance  of vocational  training  courses 
(four  hours'  work  and four  hours'  training). 
3.1.9.7.  Belgium 
Under  a collective  agreement  signed  in 1975,  newly-
engaged  workers,  particularly  young  people,  can 
familiarize  themselves  with  the firms  concerned,  its 
organization  and activities. 
Also,  firms  are being  encouraged  to take  on trainees, 
and special  payments  are made  to firms  taking  on 
trainees  either  voluntarily  or in pursuance  of legal 
requirements. 
3.1.9.5.  Denmark 
Schools  for semi-skilled  workers  (especially  for the 
young)  are being  expanded  to increase  job options 
in the future. 
3.1.9.6.  Italy 
In its legislative  programme  presented  to Parliament 
in July,  the Italian  Government  attached  high  priority 
to the  problem  of unemployment  among  young 
people.  It will  very  shortly  be bringing  before The Government  aims  to find  20 000 jobs  for 
unemployed  in the public  services,  which  will  a!so 
benefit  young  people.  Centres  for unemployed  y-oung 
people  have  been  set up in various  regions.  Short 
training  courses  have  been  arranged.  Paid  leave  is 
granted  to enable  workers  to attend  training  courses 
and grants  are also  available  for educational  courses 
of a more  general  nature. 
3.1.9.8.  The  Netherlands 
Measures  being  taken  in the Netherlands  include: 
— a scheme  to provide  employment  for  young 
people  for a year  in social  and cultural  work; 
No C 56/8 Official  Journal  of the European  Communities 7. 3.77 
— grants  for  employers  of young  people  who  are 
subject  to compulsory  part-time  education; 
— grants  for  employers  who  employ  many  young 
people  receiving  the  young  people's  minimum 
wage. 
3.1.10.  Recommendations 
3.1.10.1.  Community  action 
— The  expected  recommendation  on  vocational 
training  measures  for  young  people  should  be 
discussed  and  adopted  soon.  The  Economic  and 
Social  Committee  thinks  it could  make  a positive 
impact  on the situation.  It would  be desirable  for 
this recommendation  to provide  for  concrete 
measures,  sudh  as experimental  training  program-
mes,  which  take  account  of the  present  state  of 
affairs  and  the resulting  new  requirements.  Such 
programmes  should  — precisely  because  of their 
experimental  character  — be carried  out  rapidly 
and to this  end  should  be entrusted  to the 
educational  centres  already  operating  in the 
various  countries. 
— This  documentation  should  also  give  indications 
which  could  be of concrete  help  in promoting  the 
system  of spells  of practical  training  in plants  of 
various  sizes  and  belonging  to various  industries. 
Such  spells  of practical  training  should  take  place 
during  (and  not  after)  the period  of training  in 
order  to maintain  the indispensable  link  between 
training  and  work,  and  also,  through  the  alter-
nation  of spells  of practical  training  and  training 
in school,  to make  it possible  for the trainee  to 
subject  the  experience  he gains  during  practical 
training  to critical  examination. 
— Apprenticeships  in their  various  forms  must 
continue  to play  a key  role  in vocational  training 
and the  employment  of young  people.  They  are 
taking  on more  and  more  the  character  of 
'experience  serving  as an introduction  to the 
world  of work'. 
It seems  appropriate,  therefore  that  this  means  of 
training  should  be placed  on as broad  a basis  as 
possible  and  extended  to more  and  more  cat-
egories  for which  it is suitable.  This  applies  in 
particular  to young  people  of both  sexes  coming 
from  technical  colleges  and universities. 
In addition,  consideration  should  be given  to 
means  of encouragement  to overcome  a certain 
measure  of resistance  of industry. These  aspects  could  be  included  in  the 
recommendation  referred  to in the  first  indent 
above,  or could  form  the subject  of an ad hoc 
proposal. 
— The  European  Communities'  Education  Com-
mittee  is currently  examining  the difficulties  young 
people  have  in the  transition  from  school  to 
working  life.  The  Education  Committee's  findings 
should  be published  as soon  as possible. 
— Where  the Regional  Development  Fund  provides 
funds  for enlarging  or reorganizing  existing  plants 
or setting  up new  plants,  and  where  such  aided 
schemes  involve  an increase  in the  number  of 
employees  or recruitment,  then  the aid in question 
should  be conditional  on a percentage  of the new 
jobs being  given  to young  people  up to the age 
of 25. There  is a precedent  for this  in Article  56 
of the ECSC  Treaty. 
— The  European  Centre  for  the  Development  of 
Vocational  Training  should  analyze  the problem 
of unemployment  among  young  people  and  make 
concrete  suggestions  for improving  the vocational 
training  and  career  opportunities  of young  people 
to the fullest  possible  extent. 
— It would  be desirable  for the  EEC  Social  Fund 
to give  aid to vocational  training  centres  in the 
Member  States. 
Consideration  should  be given  by the Community 
to accrediting  these  centres  within  certain  defined 
requirements  regarding  their  structure  and 
activities.  Consideration  should  also  be given  to 
entrusting  the  centres  with  training  programmes 
in connection  with  specific  requirements  and  with 
specific  studies  on unemployment  in the  popu-
lation  groups  they  have  to deal  with. 
The European  Centre  for  the  Development  of 
Vocational  Training  could  possibly  be appointed 
as the  coordinator  between  these  centres  (in 
connection  with,  among  other  things,  the  prep-
aration  of career  briefs  and  uniform  training 
material  for the various  Member  States). 
At present,  the  Social  Fund  only  makes  grants 
(30 to 50%  maximum)  in respect  of specific 
programmes  (experiments  and  studies). 
— The  desired  improvement  in vocational  guidance 
activities  can  only  be achieved  if professional 
guidance  specialists  are trained.  The  EEC  Social 
Fund  could  be given  the  task  of seeing  to the 
training  of such  specialists,  possibly  using  the 
abovementioned  centres.  Consideration  should  be 
7.3.77 Official  Journal  of the European  Communities No C 56/9 
given  by the Commission  to making  available  to 
all employees  simple  guides  on  the  European 
Social  Fund. 
3.1.10.2.  Action  by the Member  States 
3.1.10.2.1.  Improvement  of  information  about  careers 
and employment  prospects 
— Intensification  of vocational  guidance  before  the 
end of formal  education,  cooperation  between 
schools,  employment  offices,  employers  and  study 
advice  centres  (to  be set  up or,  if they  exist 
already,  expanded),  and  development  of youth 
advisory  services  within  employment  offices. 
— Foundation  (or  expansion,  as the  case  may  be) 
of careers  research  institutes,  and  utilization  of 
their  research  findings. 
— Publicity  campaigns  about  the  guidance  and  as-
sistance  facilities  available  for  young  people, 
particularly  unemployed  young  people  (fuller 
notification  of vacancies,  establishment  of 'job 
banks',  creation  of information  markets  with  the 
assistance  of various  youth  organizations). 
— Information  courses  for young  people  who  have 
particular  difficulties  in starting  or resuming  work 
(courses  enabling  young  people  to  acquire 
a better  knowledge  of the labour  market  and  of 
the status  they  will  haive  and  the conditions  they 
should  expect  in their  future  jobs,  bearing  in 
mind  the type  of training  they  have  received  and 
the standard  they  have  reached.  These  courses 
could  be closely  linked  to the  work  carried  out 
by social  workers  and  careers  guidance  teachers). 
Young  people  should  be encouraged  to improve 
their  standard  of training  in order  to increase  the 
number  of jobs  open  to them. 
— Establishment  of colleges  for vocational  guidance 
counsellors.  These  could  perhaps  be attached  to 
the (existing  or Community-accredited)  vocational 
training  centres  in the various  Member  States. 
3.1.10.2.2.  Creation  of jobs  and  training  places 
— Basic  training  courses  for young  people  who  want 
to enter  training  but cannot  yet find  a place. 
— Basic  training  courses  for youngsters  not intending 
to enter  training  to give  them  a basic  knowledge 
which  will  make  it easier  for  them  to fit into 
working  life. — Special  courses  to help  young  people  with  lear-
ning  difficulties,  with  physical  and  mental 
handicaps  (designed  with  more  regard  for  their 
special  needs). 
— General  preparation  for work  during  the last  two 
years  at school  and/or  introduction  of a volun-
tary extra  job  preparation  year  in school  where 
insufficient  places  are  available  in vocational 
training  institutions. 
— Granting  of  direct  or  indirect  subsidies  to 
employers  who  provide  additional  jobs  or training 
places  for unemployed  young  people. 
— Assistance  for  young  people  who  have  to take 
a job or apprenticeship  outside  their  own  area. 
3.1.10.2.3.  Social  measures 
— Making  young  people  eligible  for unemployment 
benefits,  irrespective  of whether  they  have  worked 
on condition  that  they  agree  to follow  comple-
mentary  training  courses  organized  for them. 
— Financial  assistance  for  persons  seeking  work 
away  from  home,  re-settlement  allowances. 
— Financial  support  for  hostels  housing  young 
people  unable  to obtain  a training  place  or find 
a suitable  job in their  local  area. 
— Reception  services  in areas  which  have  a large 
influx  of young  migrants. 
— Youth  centres  and  workrooms  Where  young 
people  can  pursue  cultural  or social  activities, 
handicrafts,  etc.,  in their  spare  time. 
3.2. UNEMPLOYMENT  AMONG  WOMEN 
3.2.1.  The  percentage  of women  among  the  total 
unemployed  is very  high,  but  it varies  from  one 
Member  State  to another,  partly  as a result  of their 
different  arrangements  for unemployment. 
3.2.2.  In .addition  many  women  are  in fact  unem-
ployed,  although  they  are  not  represented  in the 
official  figures.  In several  Member  States,  as for 
example  in  Ireland,  unemployment  figures  are 
calculated  on  the  number  af workers  who  are 
claiming  unemployment  benefits,  rather  than  on die 
number  who  are  seeking  work.  Last  year,  in the 
Federal  Republic  of Germany  alone,  almost  250  000 
women  were  not  included  in the  unemployment 
/ 
No C 56/10 Official  Journal  of the European  Communities 7. 3. 77 
figures  as they  were  no longer  entitled  to unemploy-
ment  benefit;  they  considered  it furthermore  futile  to 
register  as a job-seeker  with  a labour  exchange 
because  there  were  no  jobs.  (Note:  throughout 
Europe,  married  women  are  wanting  to return  to 
work  in increasing  numbers  and  in all but  three 
Member  States  married  women  make  up 50%  or 
more  of the female  labour  force). 
3.2.3.  Many  women  drop  out  of the labour  market, 
either  of their  own  free  will  or otherwise,  when  they 
enter  into  family  responsibilities  or when  they  lose 
their  job.  There  is a danger  that  the habitual  prefer-
ence  if or preserving  men's  jobs  could  grow  stronger 
in the  Community  countries,  since  statistics  show 
that women  continue  to be regarded  as a pool  of 
casual  labour.  This  is particularly  so in the case  of 
jolbs in which  men  and  women  are  to be found.  In 
such  cases  women  are  often  the  first  to lose  their 
jobs. 
3.2.4.  The  precarious  position  of women  in the 
labour  force  is further  aggravated  by the  fact  that 
more  and  more  women  want  to find  a job.  This  is 
because,  to an ever  increasing  extent,  they  are coming 
to regard  employment  as a stimulation  and  a means 
of personal  development.  Thus  they  are reluctant  to 
stop work  on la permanent  or temporary  basis,  when 
they marry  or have  a child.  They  are  beginning  to 
question  their  position  in the labour  market  and  why 
they should  be restricted  to a narrow  range  of 
occupations. 
3.2.5.  Women  seeking  jabs  find  that  their  chances 
are limited  not  only  by the situation  on the  labour 
market  in general  but  also  by the  so-called  dual 
labour  market  existing  in the Community.  Men  have 
access  to far  more  jobs  in this  market  than  do 
women.  This  dual  labour  market  should  be abolished 
wherever  possible  as it prevents  women  from  using 
their  abilities.  In this  contexv,  reference  may  be made 
to experiences  gained  particularly  in the  two  world 
wars,  when  large  numbers  of women  were  employed 
in what  was  hitherto  only  men's  work,  notably  in 
engineering.  Although  women's  ability  to train  for 
and perform  such  jobs  was  proved  beyond  doubt, 
after  the two  wars  the traditional  views  of women's 
role in the  labour  market  once  again  came  to the 
fore. 
3.2.6.  For  the  abovemenitioned  reasons  women's 
employment  is stall  concentrated  in certain  industries, 
particularly  those  for  which  onlly  slight  training  is required.  Consequently,  women  are  hardest  hit by 
any fall-off  in employment  in these  industries. 
3.2.7.  Statistics  indicate  that,  in the majority  of cases, 
unemployment  among  women  has  increased  propor-
dionately  more  than  unemployment  among  men.  The 
improvements  in the  employment  situation  in the 
past benefited  primarily  the  male  labour  force  and 
it is therefore  the  structural  aspect  olf  female 
•unemployment  which  needs  to be reviewed.  Statistics 
indicate  that  the  level  of unemployment  among 
women  is disproportionately  high.  In most  of the 
Memlber  States  unemployment  among  women  is 
growing  at a faster  rate  than  unemployment  among 
men.  In the  Federal  Republic  of Germany  the 
unemployment  figures  for  women  are  actually 
increasing  while  figures  for  men  are  showing  a 
decrease.  Between  May  1975  and  May  1976  the 
figures  for men  dropped  by 15 7% whilst  those  for 
women  increased  by 6 9%.  In Belgium  the  number 
of women  unemployed  has  gone  up by 15 1% in 
1976  and  the number  of men  unemployed  by 5 1%. 
3.2.8.  Unemployed  women  have  less  chance  of 
finding  a jolb than  unemployed  men.  There  are many 
reasons  for this: 
— There  is no doubting  the  numerical  importance 
of women  to the  economy.  There  is, however, 
prejudice  against  women  on the  grounds  that 
they do not  commit  themselves  fully  to paid 
employment  because  they  are wives  and  mothers 
or potential  wives  and  mothers.  This  misjudge-
ment  greatly  hinders  women's  chances  of finding 
work  in periods  of economic  crisis. 
— The  majority  of vacancies  are for skilled  workers. 
But, in general,  the  percentage  of women  who 
are unskilled  or semi-skilled  is far greater  than 
that of men. 
— Women  are  usually  mistakenly  regarded  as 
providing  the family  with  supplementary  income 
which  is not absolutely  essential.  Because  of this, 
the moral  obligation  of offering  them  new  jobs  is 
not regarded  as very  important. 
— Women  are  also  usually  mistakenly  regarded  as 
'having-  less  right  than  men  to compensation  for 
loss of earnings  from  public  authorities.  Finding 
a job  for  an unemployed  man,  therefore,  often 
brings  a greater  apparent  saving  than  a job  for 
an unemployed  woman. 
— Women's  chances  of finding  jobs  and  the general 
conditions  under  which  they  can  take  on jobs 
7. 3. 77 Official  Journal  of the European  Communities No C 56/11 
depend  on the  composition  of their  families  and 
on the  child-minding  facilities  available  in their 
area. 
— Because  of the  family  responsibilities  traditionally 
allotted  to them,  women  find  that  their  mobility 
is limited,  one  result  being  that  they  are  often 
unable  to take  jobs  in another  town.  Particularly 
restricting  is the  fact  that  child-minding  facilities 
(creches,  nurseries,  kindergartens  and  day  centres) 
are not  provided  in sufficient  numbers  in any  of 
the Member  States  (see  Committee's  opinion  on 
equality  of treatment  (1)). 
3.2.9.  The  fact  chat  so many  women  are  unemployed 
in the  Community  has  allso  so ifar  had  ilittle  actual 
impact  on  public  opinion.  The  idea  that  women 
provide  a reserve  of labour  is still  deeply  entrenched. 
This  is most  clearly  illustrated  by  the  fact  that 
equality  is far from  being  achieved  in certain  Member 
States,  whilst  the  social  legislation  of other  Member 
States  contains  gross  violations  of the  principle  of 
equal  rights  for  men  and  women  in the  provisions 
governing  unemployment  benefits  for  women.  (As 
an example,  in Ireland  a man  is entitled  to £ 9 40 
per week  (flat  rate  unemployment  benefit)  whereas 
a married  woman  is entitled  to only  £ 8 20 per week. 
Females  under  16 years  of age  are  ineligible  for 
unemployment  assistance.  Eligibility  only  begins 
when  the  female  concerned  has  paid  52  weekly 
social  welfare  insurance  contributions.  Boys  do not 
have  to fulfil  this  requirement  in order  to qualify  for 
unemployment  assistance). 
3.2.10.  The  firmly-entrenched  concept  of the specific 
role of women  workers,  "namely  to provide  a reserve 
of ilabour  and  a supplementary  source  of income  for 
the family  budget,  has  undoubtedly  contributed  to 
the fact  that  at present  no Member  State  has  intro-
duced  special  programmes  designed  to find  jobs  for 
unemployed  women. 
3.2.11.  This  means  that  Community  action  in favour 
of women  merits  special!  attention,  although  this  will 
only  have  an  indirect  effect  as far  as  female 
unemployment  is concerned. 
3.2.12.  The  following  paragraphs  list  the  measures 
taken  in the  past  (when  the  economic  situation  was 
less critical)  by the  Member  States  for  the  re-entry 
of women  to the 'labour  market. 
(l) OJ No C 286,  15. 12. 1975. 3.2.12.1.  Denmark 
The Danish  Ministry  of Labour  has  been  assisted 
by a specially  appointed  counsellor  for  women's 
occupations  but  there  has  been  no special  legislation 
with  regard  to women. 
The Ministry  of Labour  has  established  vocational 
guidance  courses  of two  weeks  duration  to provide 
women  with  information  about  available  jobs  and 
to provide  an opportunity  for  discussion  days  in 
each  week  in places  of woric,  in offices,  industry  or 
shops.  An  O'ECD  study  revealed  that  50%  of the 
women  who  attended  the (first  15 vocational  guidance 
courses  took  a job  immediately  upon  completion  of 
the course,  about  70%  of them  on a part-time  basis. 
3.2.12.2.  France 
In France,  a private  college  (receiving  financial 
support  from  the  Ministry  of Labour)  has  been 
running  a nine-months  part-time  course  including 
evening  study  for  older  women.  The  average  age  of 
students  has  been  34 and  the  courses  cover  sulbjects 
for women  seeking  to enter  administrative  grades  of 
public  and  private  enterprises. 
The professional  association  for  a dull t training  is 
trying  to make  vocational  training  available  to greater 
numbers  of women,  giving  priority  to widows  who 
wish  to resume  employment. 
3.2.12.3.  Federal  Republic  of Germany 
A special  section  of the Federal  Institute  of Labour  is 
working  with  women  who  wish  to re-enter  the labour 
market. 
Several  types  of training  courses  have  been  available, 
including  on-the-job  training,  refresher  courses  and 
training  to upgrade  skills.  A survey  made  at the  end 
of June  1976  of the  numbers  of  women  taking 
advantage  of  vocational  advancement  schemes 
organized  by the  Federal  Institute  of Labour  showed 
that only  34 519  of the total  148  666  participants  were 
women. 
One of the  reasons  for  the  lack  of participation  of 
women  in training  is the  limited  number  of occu-
pations  for which  training  is offered.  There  is still  no 
conscious  attempt  to train  women  for  jobs  which 
traditionally  belong  to men. 
No C 56/12 Official  Journal  of the European  Communities 7. 3. 77 
3.2.12.4.  Belgium 
The National  Employment  Office  in Belgium  has 
organized  many  vocational  training  courses,  some  of 
which  'have  been  devoted  exclusively  to 'women's' 
jobs whilst  others  were  open  to both  men  and 
women. 
3.2.12.5.  Italy 
Various  training  courses  are  organized  on a regional 
basis  and  are  open  to qualified  persons  of either  sex. 
3.2.12.6.  The  Netherlands 
In the  Netherlands  the  regional  employment 
authorities  were  asked  to submit  to the  government 
special  schemes  to promote  the  employment  of 
women: 
— the  temporary-jobs  scheme  also  applies  to part-
time  workers  and  women  wishing  to re-enter 
employment, 
— wage  supplement  schemes  and  wage  subsidy 
schemes. 
3.2.12.7.  European  countries  outside  the  EEC 
Experiences  acquired  in other  European  countries 
outside  the  EEC  could  also  usefully  be considered. 
The measures  taken  in Sweden  are therefore  described 
in Appendix  II (*). This  information  comes  from 
semi-official  publications. 3.2.13.1.  Community  measures 
— The  Commission  intends  to  submit  in 1976 
recommendations  aimed  at  encouraging  the 
development  of further  practical  vocational  train-
ing for  women  and  intends  to propose  measures 
to eliminate  discriminatory  treatment  of women 
in the  social  security  sector.  These  recommen-
dations  will  also  deal  with  discriminatory  rules  in 
unemployment  insurance  schemes. 
— Community  aid  to vocational  training  centres  to 
enable  them  to offer  special  courses  for  women 
to prepare  them  for  their  working  lives  or a 
resumption  of woA. 
— The  European  Centre  for  the  Development  of 
Vocational  Training  should  analyze  the  problem 
of female  unemployment  and  make  concrete  sug-
gestions  for  improving  the  vocational  training 
and career  opportunities  of women  to the  fullest 
possible  extent. 
— Where  the  'Regional  Development  Fund  provides 
funds  for enlarging  or reorganizing  existing  plants 
or setting  up new  plants,  and  where  such  aided 
schemes  involve  an increase  in the  number  of 
employees  or recruitment,  then  the aid in question 
should  be conditional  on a percentage  of the new 
jobs being  given  to women.  There  is a precedent 
for this  in Article  56 of the ECSC  Treaty. 
3.2.13.2.  Action  by the Member  States 
3.2.13.  Recommendations 
It should  be noted  that  many  suggestions  for relieving 
unemployment  among  young  people  also  apply  to 
•female  unemployment,  (because  jobless  young  people 
(include  many  girls,  who  of course  also  fall  into  the 
'unemployed  female'  category.  When  measures  are 
being  taken  to reduce  unemployment  among  women 
and to ensure  equal  treatment  of men  and  women, 
one of the  major  points  to be considered  is the need 
to place  men  and  women  on an equal  footing  in 
respect  of their  cost  to the employer.  The  Community 
and the  Member  States  must  endeavour  to bring 
about  an improvement  in the  attitude  of employers 
towards  employing  women,  by ensuring  that  employ-
ing women  does  not  involve  the  employer  in extra 
costs  because  of the special  career  pattern  of women. 3.2.13.3.  Improvement  of  information  about  careers 
and career  prospects 
— Publicity  campaigns  linked  to  guidance  and 
counselling  to help  bring  women  into  new  occu-
pations  and  levels  of responsibility  (affirmative 
action;  widening  of the  range  of employment 
opportunities  for women). 
— Cooperation  between  schools,  employment  offices 
and employers,  in order  to  make  girls  still 
attending  school  aware  of job  possibilities  (other 
than  traditional  female  jobs). 
— Introduction  of co-education  or, at least,  similar 
curricula  and  timetables  for boys  and  girls. 
(x) Not  available  for publication. — Special  women's  services  wirhin  employment  and 
vocational  guidance  offices  (individual  guidance). 
7. 3. 77 Official  Journal  of the European  Communities No C 56/13 
— Vocational  guidance  classes  and  information 
courses  via  media  to if it a housewife's  timetable 
(educational,  television,  open'university). 
— Information  visits  to give  women  the opportunity 
to see various  jobs  being  carried  out  in industries 
or firms.  Where  necessary  those  talking  part  in 
such  visits  would  have  to have  their  travel 
expenses  and  any  loss  of income  reimbursed  from 
public  funds. 
— Work  manual  for women  would  describe  to them 
the ways  in which  to re-enter  the job market  and 
the non-traditional  job  sources  available  (it could 
contain  lists  of career  counselling  services,  occu-
pational  organizations,  governmental  services, 
women's  centres  and  educational  opportunities 
available  to them). 
3.2.13.4.  Creation  of jobs  and  training  places 
— Organization  and/or  extension  of  refresher 
courses  (possibly  in the  form  of correspondence 
courses)  and  s<hort-term  training  courses  for 
women  wishing  to return  to work. 
— Granting  of subsidies  to employers  who  provide 
jobs or training  places  for  unemployed  women. 
— Provision  of  continuous  training  courses  for 
women  throughout  the  year  with  the  possibility 
of familiarizing  women  with  several  jobs, 
particularly  those  not  normally  regarded  as 
women's  jobs. 
3.2.13.5.  Social  measures 
— Increase  of child-care  facilities  for  women  with 
family  responsibilities  seeking  access  to vocational 
training  and  employment  (in times  of economic 
stress,  public  investment  for  the care  of children 
tends  to  be  reduced  without  regard  to  the 
consequences  for women  in employment). 
— Principle  of equal  training  grants  for  men  and 
women. 
— Provision  of adivice  on psychological  and  social 
problems  in  employment  offices  and  firms 
employing  women  re-entering  the labour  market. 
— Full  equality  in unemployment  insurance  schemes 
and in treatment  by employment  offices. 
— Measures  to make  workers  better  able  to fulfil 
their  famrly  responsibilities: (a) part-time  and  temporary  work  which  does  not 
involve  discrimination  in pay  or  in social 
guarantees  ; 
(!b) adoption  of flexible  and  variable  working 
hours  whenever  the work  organization  allows; 
(c) as a matter  of priority,  shortening  of the 
working  day  and  the  working  week  as part  of 
a planned  reduction  'in working  hours. 
— Provision  of maternity  and  paternity  leave  and 
special  leave  when  children  are very  young. 
— Measures  to ensure  that  there  is no discrimination 
as regards  the  actual  labour  costs  to be met  by 
employers  in respect  of men  and  women. 
3.3. UNEMPLOYMENT  AMONG  ELDERLY 
WORKERS 
It should  first  of ail be pointed  out  that,  given  the 
present  economic  situation  and  economic  structures, 
measures  taken  or to be taken  to relieve  unemploy-
ment  among  young  people  may  often  have  a preju-
dicial  effect  on measures  to help  unemployed  elderly 
workers.  As  far  as possible,  therefore,  measures 
should  be taken  in fields  where  there  is either  no 
clash  of interests  or only  a slight  clash  of interests 
between  these  two  groups.  Alternatively,  measures 
may be taken  which  help  both  groups  (e.g.,  giving 
young  workers  the  opportunity  to benefit  from  the 
vocational  experience  of elderly  workers). 
3.3.1.  The  figures  on unemployment  among  elderly 
workers  are  the  least  informative.  One  of the  main 
reasons  for  this  is that  the  term  'elderly  worker'  is 
defined  in many  different  ways. 
3.3.2.  Occupational  qualifications  undoubtedly 
determine  to  a  considerable  extent  whether 
unemployed  workers  aged  between  40 and  50 are 
offered  new  jobs.  "Workers  who  received  good 
vocational  training  when  they  were  young  stand  a 
much  better  chance  of finding  a new  job.  This  holds 
true in spite  of the  fact  that  technical  changes  may 
greatly  affect  jobs  and  bring  new  requirements.  The 
need  for  learning  to be recognized  as a life-long 
process  should  be repeatedly  stressed  so that  this 
recognition  does  not  come  too  late,  as  may 
unfortunately  happen  in the  case  of unemployed 
elderly  workers. 
No C 56/14 Official  Journal  of the European  Communities 7. 3. 77 
3.3.3.  There  is  also  a 'lack  of  information, 
particularly  for elderly  workers,  about  which  abilities 
and skills  should  be further  cultivated  or acquired 
in order  to equip  a person  for  the  ups  and  downs 
of working  life. 
3.3.4.  Furthermore,  there  is also  an insufficient  range 
of continuous  service  training  courses,  and  workers 
are not  sufficiently  encouraged  to  attend  such 
training  courses. 
3.3.5.  Elderly  workers  sometimes  underestimate  the 
risk of losing  their  jobs.  This  is because  they  are 
aware  of the  efforts  being  made  by the  legislature 
and the trade  unions  to bring  about  'better  protection 
against  dismissal  and  to have  extensive  social  security 
provisions  for  those  who  are  dismissed.  Such  ar-
rangements  are,  however,  far from  being  general. 
3.3.6.  In many  fields  it is also  evident  that  employers 
tend to give  jobs  to younger  and  possilbly  better-
qualiified  workers,  particularly  where  jobs  and  job 
requirements  are  changing.  Even  when  such  changes 
do not  result  in dismissals,  they  oiften  involve  the 
downgrading  of jobs  or early  retirement.  Both  of 
these  measures  hit elderly  workers  very  :hard,  as they 
restrict  the  scope  for  self-development  and  have  a 
decisive  and  'long-term  effect  on self-confidence.  It 
is common  knowledge  that  the  psychological  con-
sequences  of this  situation  often  have  a very  bad 
effect  on the health  of the workers  concerned. 
3.3.7.  Measures  taken  by Member  States  to reduce 
unemployment  among  elderly  workers 
3.3.7.1.  Italy 
In Italy,  the work  of the 'National  Institute  of Retire-
ment  and  Care  for  Old  People'  (Institute  Nazionale 
di Riposo  a Cura  per  Anziani)  has  been  valuable,  as 
it has  carried  out  research  studies  concerning  its 
subject  — the over-fifties.  Inquiries  are beting  made  as 
to the  elderly  worker's  behaviour  in relation  to 
material,  educational  and  cultural  needs,  the  degree 
of potential  and  real  isolation  in the working  world, 
and the  problems  he faces  when  reaching  pension 
age. Retraining  courses  in various  industries  are also 
provided  at various  institutes  and  in many  regions. 3.3.7.2.  United  Kingdom 
There  'has  been  discussion  about  involving  elderly 
workers  in the  construction  and  administration  of 
special  community  centres  (guidance  of  young 
workers  by elderly  workers  in special  fields  of work, 
giving  the elderly  worker  the task  of helping  to inte-
grate  the young  worker). 
3.3.7.3.  The  Netherlands 
In some  Member  States,  as for  example  in the 
Netherlands,  experiments  in the  early  retirement  of 
elderly  workers  (e.g.,  teachers,  building  workers)  are 
being  carried  out. 
3.3.7.4.  Belgium 
In Belgium  it is possible  for  men  to go into  early 
retirement  at 60 and  women  at 55.  In such  cases 
unemployment  benefits  are  paid  until  the  worker 
concerned  reaches  the  normal  pensionable  age.  The 
same  conditions  apply  to workers  of the  above  ages 
who lose  their  jobs. 
The express  aim  of this  scheme  is to preserve  the 
jobs of young  people  and  to enable  young  people 
to fill the vacancies  which  the scheme  creates. 
3.3.7.5.  Federal  Republic  of Germany 
In Germany  there  is a special  law  to protect  elderly 
workers  in the  event  of their  dismissal  Under  this 
law workers  who  lose  their  jabs  have  to be given 
quite  a long  period  of notice  which  varies  according 
to a worker's  age  and  his  length  of service.  The 
general  law  on dismissals  also  stipulates  that  when  a 
firm has  to dismiss  a worker,  social  factors,  such  as 
the worker's  age,  must  be taken  into  consideration. 
Many  wage  agreements  also  include  clauses 
prohibiting  the dismissal  of elderly  workers. 
3.3.7.6.  France 
Unemployment  among  the  elderly  is being  relieved 
through  the  income  guarantees  scheme  of UNEDIC 
(which  gives  workers  over  60 who  have  been  made 
redundant  70%  of their  previous  wages  until  they  are 
65) and  through  special  benefits  from  the  National 
Employment  Fund. 
7. 3. 77 Official  Journal  of the European  Communities No C 56/15 
Also,  a law  has just  dowered  to 60 the retirement  age 
for some  types  of manual  workers  (those  working 
continuous  or semi-continuous  shifts,  or under  diffi-
cult conditions,  and  assembly  line  workers)  and  for 
the women  who  have  raised  three  children  and  done 
a manual  job for five  years. 
3.3.8.  Recommendations 
3.3.8.1.  Recommended  Community  action 
— In the Social  Action  Programme,  the problem  of 
elderly  workers  was  given  high  priority  on the 
ground  that  an unbalanced  labour  policy  would 
lead to psychological  and  economic  problems. 
This  is a valid  reason,  but  it is not  the  whole 
story.  The  psychological  damage  caused  by the 
downgrading  or dismissal  of elderiy  workers  in 
the present  economic  crisis  'has been  neglected  on 
the European  level.  The  Commission  should 
initiate,  without  futher  delay,  an action  pro-
gramme  for the elderly  worker.  This  programme 
should  analyze  the social  and  economic  position 
of elderly  workers  in Europe  and  recommend 
special  measures  to Memiber  States  to promote 
flexible  retirement  and  pension  facilities  and  to 
give each  elderly  worker  a margin  of personal 
choice. 
— The  European  Social  Fund  should  be used,  for 
example,  to improve  training  and  retraining 
facilities  and  to promote  much-needed  intensive 
'crash  courses'  to enalble  elderly  workers  to re-
adjust  and  learn  the  skills  needed  for new  jobs. 
— "Where  the Regional  Development  Fund  provides 
funds  for enlarging  or reorganizing  existing  plants 
or setting  up new  plants,  and  where  such  aided 
schemes  involve  an increase  in the  number  of 
employees  or recruitment,  then  the aid in question 
should  be conditional  on a percentage  of the new 
jobs being  given  to elderly  workers.  There  is a 
precedent  for  this  in Article  56 of the  ECSC 
Treaty. 
3.3.8.2.  Action  by the Member  States 
3.3.8.2.1.  Improvement  of information  about  careers 
and employment  prospects 
— Improvement  of  information  about  changing 
patterns  of employment  and  technical  and  organ-
izational  changes  in jobs. — The  provision  of 'information  services  for elderly 
workers  to keep  them  up-to-date  with  trends  in 
employment  and  job  developments  and  to help 
them  consider  various  options  when  retirement 
age approaches. 
— Regular  and  up-to-date  information  about  retire-
ment  possibilities. 
3.3.8.2.2.  Creation  of jobs  and  retraining  places 
— Improving  provision  for  'continuing  education', 
with  the accent  on life-long  training  and  flexibility 
(some  work  in this  field  is being  done  iby OECD, 
UNESCO  and  the ILO). 
— Special  job-creating  programmes  in which  elderly 
workers  would  be able  to use  their  working  and 
general  experience  particularly  in helping  young 
workers  and  which  wou'ld  enable  ithem  to retain 
their  previous  social  standing. 
— Crash-training  courses  specially  for older  workers 
taking  fully  into  account  their  previous  work. 
— Direct  or indirect  subsidies  to firms  giving  jobs 
to elderly  workers. 
— Direct  or indirect  grants  to establishments  pro-
viding  training  or retraining  courses  for  elderly 
persons  or carrying  on other  activities  designed 
to help  elderly  persons.  Such  grants  would,  of 
course,  only  be paid  in respect  of courses  of an 
appropriate  quality. 
3.3.8.2.3.  Social  measures 
— Increased  research  into  the problems  of old  age. 
— Reconsideration  of the  maximum  age  limits  for 
workers  seeking  jobs  in the  private  and  public 
sectors.  Abolition  of these  age  limits  wherever 
possible. 
— Broadening  of flexible  retirement  and  pension 
facilities  (the  possibility  of going  on early  pension 
or receiving  temporary  or partial  pensions;  possi-
bility  of re-entering  employment  after  having 
taken  a pension). 
— Guidance  and  adjustment  assistance  for  elderly 
workers  wanting  to be retrained. 
No C 56/16 Official  Journal  of the European  Communities 7.3.77 
— Flexible  hours  and  holidays,  part-time  and 
temporary  work,  where  elderly  workers  are 
subject  to special  constraints  or have  special 
preferences  (provided  that  this  is possible  from 
the point  of view  of organization). 
3.4. CONCLUSIONS 
3.4.1.  All  the  Member  States  are  suffering  from 
unemployment,  although  to different  degrees.  Young 
people,  women  and  elderly  workers  are  particularly 
hard  hit.  Programmes  for  tackling  unemployment  in 
general  of  course  includes  the  abovementioned 
groups,  but  they  are  inadequate.  Specific  measures 
are also  needed. 
3.4.2.  The  main  aim  of specific  programmes  must 
be to create  new  jobs,  otherwise  the solutions  to one 
of these  groups'  problems  may  aggravate  the 
problems  of the other  groups. 
3.4.3.  Some  Member  States  already  have  specific 
programmes  for  dealing  with  unemployment  among 
young  people.  As for  programmes  to help  women 
and elderly  workers,  the most  that  can  be said  is that 
some  Member  States  have  made  a start  on  the 
problem. 
3.4.4.  There  must  be more  training  and  retraining 
facilities  and  standards  must  be  improved.  Such 
facilities  must  also  be  better  adapted  to actual 
requirements.  This  is  necessary  since  a large 
percentage  of  unemployed  persons  are  either 
unskilled  or  semi-skilled.  Vacancies  for  skilled 
workers,  on the other  hand,  frequently  still  arise. 
3.4.5.  There  is another  reason  why  a higher  standard 
of training  must  be achieved.  Since  Europe  has  little 
in the  way  of raw  materials  its future  development 
will depend  more  and  more  on  highly-skilled 
manpower.  Workers  who  are at present  not  receiving 
training  properly  geared  to future  requirements  may 
well be needed  by the economy  in a few  years'  time. 3.4.6.  Prejudice  against  employing  women  and 
elderly  workers  must  be broken  down.  Europe  needs 
the intelligence  and  the  experience  of these  workers. 
And it must  also  be borne  in mind  that  work  can 
give women  and  elderly  workers  a sense  of fulfilment 
and self-confidence. 
3.4.7.  The  Committee  recommends  chat  measures  be 
taken  both  by the  Community  (Commission)  and 
the individual  Member  States. 
3.4.8.  As  regards  Community  measures,  the 
Committee  is eagerly  awaiting  the  Commission's 
proposals,  which  have  already  been  announced,  on 
the problems  of young  persons,  women  and  elderly 
workers.  It notes  that  up to now  the  Commission 
has given  least  attention  to the  third  group,  elderly 
workers. 
3.4.9.  The  Committee  urges  that  the  Social  Fund 
be used  in particular  to help  the  three  groups  in 
question. 
3.4.10.  As  regards  action  by the  Member  States,  the 
Committee  advocates  for  all  three  groups  of 
unemployed:  better  information  on  careers  and 
career  prospects;  the  creation  of jobs  and  training/ 
retraining  places;  and  a large  number  of social 
measures  to provide  a better  framework  for  the 
training  and  employment  of young  people,  women 
and elderly  workers. 
3.4.11.  The  Committee  considers  that  society  as 
a whole  should  pay  for  these  necessary  measures. 
Employers  should  not  be expected  to  carry  the 
burden  on their  own. 
Done  at Brussels,  25 November  1976. 
The Chairman 
of the Economic  and  Social  Committee 
Basil  de FERRANTI