No C 255/18 Official  Journal  of the  European  Communities 7. 11.75 
report  before  30 June  1975.  But it notes  with  concern 
that the  Council  did  not  adopt  the  proposal  of the 
Commission  for  a Committee  for  educational 
cooperation  responsible  to the  Commission.  The 
Committee  is strongly  of the view  that  there  must  be 
a permanent  Education  Committee  on whose  advice 
Community  policy  in the  field  of education  can  be 
formulated  and,  more  important,  action  taken  and  it would  wish  to be consulted  on the  membership  of 
this committee  and  on its terms  of reference  including 
its relationship  with  the  consultative  committee  on 
vocational  training.  It intends  in any  case  to maintain 
a close  and  continuing  interest  in the whole  subject 
of education  .which  is, in its view,  so central  and  so 
vital  to the well-being  of the Community. 
Done  at Brussels,  24 April  1975. 
The Chairman 
of the Economic  and  Social  Committee 
Henri  CANONGE 
Opinion  on the programme  of Pilot  Schemes  and  Studies  to combat  poverty  drawn  up 
in accordance  with  the  Council  resolution  of 21 January  1974  concerning  a Social 
Action  Programme 
The text  referred  to the Committee  has not been  published  in the Official  Journal  of the 
European  Communities. 
A. LEGAL  BASIS  FOR  THE  OPINION 
On 23 January  1975,  the  Council  referred  the  abovementioned  programme  to the 
Economic  and  Social  Committee  under  Article  198  of the  Treaty  establishing  the 
European  Economic  Community. 
B. OPINION  OF THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  drew  up its Opinion  at its 129th  plenary  session, 
held in Brussels  on 23 and  24 April  1975. 
The Opinion  is published  below: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE, 
Having  regard  to the referral  of 23 January  1975  by 
the Council  of the  European  Communities  of the 
Programme  of pilot  schemes  and  studies  to combat 
poverty,  drawn  up in accordance  with  the  Council 
resolution  of 21 January  1974,  concerning  a Social 
Action  Programme; Having  regard  to  the  Treaty  establishing  the 
European  Economic  Community  and  in particular 
Article  198  thereof; 
Having  regard  to the decision  taken  by the Bureau  of 
the Committee  on 28 January  1975  instructing  the 
Section  for Social  Questions  to draw  up an Opinion 
on the matter; 
7.11.  75 Official  Journal  of the European  Communities No C 255/19 
Having  regard  to the  Opinion  delivered  by  the 
Section  for Social  Questions  at its meeting  held  on 10 
April  1975  and  the  oral  report  by Mr  Carroll,  the 
Rapporteur; 
Having  regard  to the discussions  at its 129th  plenary 
session  on 23 and  24 April  1975,  sitting  of 24 April; 
Whereas  as much  importance  to vigorous  action  in 
the social  field  as to the  achievement  of economic 
and monetary  union  is stressed  in the Social  Action 
Programme  submitted  by the  Commission  to the 
Council  on 25 October  1973; 
Whereas  the  Social  Action  Programme  envisages 
specific  action  against  poverty  with  the objective  of 
assisting  the Member  States  in their  efforts  to ensure 
that the chronically  poor  are aided  and  equipped  to 
increase  their  share  in the  economic  and  social 
well-being  of the Community; 
Whereas  the  Economic  and  Social  Committee 
stressed  in its  Opinion  on  the  Social  Action 
Programme  that  the  goals  of the  Social  Action 
Programme  should  be borne  in mind  in arriving  at 
Community  decisions  and  stated  that  top  priority 
should  be given  to a specific  effort  to help  people 
with  low  incomes  and  those  who  are  particularly 
poorly  off, 
HAS  ADOPTED  THE  FOLLOWING  OPINION  ' 
with  unanimity  and  5 abstentions: 
The Committee  approves  the  proposals  for  the 
Programme  of pilot  schemes  and  studies  to combat 
poverty  drawn  up in accordance  with  the  Council 
resolution  of 21 January  1974  concerning  a Social 
Action  Programme  subject  to  the  following 
comments: 
1. General  comments 
1.1. The  Committee  wishes  to stress  that  the 
Council,  in its resolution  of 21 January  1974,  noting 
the proposals  contained  in  the  Social  Action 
Programme,  expressed  the political  will  to adopt  the 
measures  necessary  to achieve  a number  of specific 
objectives  during  an initial  stage  covering  the years 
1974  to 1976.  Some  24 actions  were  listed  in addition 
to 10  actions  in the  social  field  already  being 
processed  by the  Institutions  of the  Communities. 
These  included  the following  action: '... to implement,  in  cooperation  with  the 
Member  States,  specific  measures  to combat 
poverty  by drawing  up pilot  schemes'. 
1.2. The  Committee  endorses  wholeheartedly  the 
priority  status  which  was  accorded  to this  action 
against  poverty,  in a list of nine  in respect  of which 
the Commission  undertook  to submit  the  necessary 
proposals  during  1974.  The  Committee  wishes  to 
stress  that  it was  providing  in the Council  resolution, 
that the actions  decided  upon  should  be implemented 
in accordance  with  the  provisions  laid  down  in the 
Treaty,  including  those  of Article  235  of the  Treaty 
establishing  the  European  Economic  Community. 
The resolution  also  contained  the statement  that  'to 
achieve  the  proposed  actions  successfully,  and 
particularly  in view  of the  structural  changes  and 
imbalances  in  the  Community,  the  necessary 
resources  should  be provided  ...'. 
2. Welcome  for Community  initiative 
2.1. The  Committee  welcomes  the  proposed 
programme  as an initiative  which  represents  the first 
commitment  of the Communities  to the fight  against 
poverty.  While  the  scale  and  scope  of this  first 
programme  are necessarily  limited,  the fact  that  the 
Communities  can,  in this  manner,  provide  both 
support  and  stimulus  for national  efforts  in this  area 
is of very  real  importance. 
2.2. It  is in general  true  that  the social  policies  of 
the Communities  have  concentrated  on  social 
problems  arising  in, or connected  with,  the field  of 
employment.  In the Social  Action  Programme  it was 
stated  that  'the  purpose  of economic  growth  should 
be to widen  the range  of social  options  available  to 
the people  of the  Community  by bringing  about  a 
continuing  rise  in living  standards  and  the quality  of 
life. Unless  the process  of growth  can  be put  more 
fully  at the  service  of society,  growth  itself  may 
become  politically  unacceptable'.  In this  spirit  the 
Committee  wishes  to stress  that  there  is need  for a 
broadening  of the  scope  of social  policy,  so as to 
reflect  the  whole  range  of social  problems  and 
requirements  of the people  of the Member  States. 
2.3. Among  the important  social  problems  outside 
the employment  area  is the  existence  within  the 
Member  States  of poverty  on a significant  scale.  In 
the Social  Action  Programme,  the  Commission 
pointed  out  that  there  is a minority  of very  poor 
No C 255/20 Official  Journal  of the  European  Communities 7.11.  75 
persons  in the Community,  including  certain  of the 
elderly,  unemployable  persons  and  their  families,  the 
socially  maladjusted,  large  families  with  exceptionally 
low incomes,  small  farmers,  etc.  This  is a 
heterogeneous  group,  difficult  to identify  and 
measure,  the  parts  of which  are  difficult  to define, 
identify  and measure. 
2.4. The  report  of the working  party  set up by the 
Commission  in  1974  commented  on  this 
phenomenon  in the following  terms: 
'The  Member  States  of the Community  have,  by 
international  standards,  a  highly-developed 
structure  of  social  services,  social  security, 
education  — they  are what  are generally  termed 
welfare  states.  Also,  in most  nations  there  has 
been  a sustained  history  of economic  growth  and 
high levels  of employment  over  the past  25 years. 
Yet, in many  states  poverty  is a major  concern 
and poverty  persists  even  in the  most  fortunate 
nations'. 
2.5. The  Committee  points  out  that  these 
considerations  give  rise to certain  key  questions,  most 
particularly  in relation  to the  causes  of continuing 
poverty  and  need  among  groups  and  individuals;  to 
the failure  of the  non-poor  to  recognize  the 
persistence  of poverty  and  to make  the  changes 
necessary  to end  it and  to the  apparent  fact  that 
attempts  made  to resolve  social  problems  do not 
eradicate  poverty  and  may  even  aggravate  it. 
2.6. Poverty  is defined  in the  Commission's 
document  as 'a lack  of command  of resources 
(including  cash  incomes,  material  assets  and  publicly 
or privately  organized  services  such  as housing  or 
education)  so extreme  that  the individual  families  or 
categories  of persons  concerned  are  excluded  from 
minimum  acceptable  ordinary  living  patterns, 
customs  and  activities'.  This  definition  focuses  the 
programme  on material  deprivation  relative  to the 
living  patterns  of the  society  under  consideration. 
The Committee  accepts  the  applicability  of this 
wide-ranging  definition  which  focuses  attention  upon 
the many  facets  of poverty  in the  context  of 
advanced,  modern  economic  systems.  It is recognized 
that a more  precise  definition  may  be required  in the 
future  and  that  this  may  be facilitated  by the results 
of the pilot  schemes  and  pilot  studies. 2.7. In  the Committee's  view  the causes  of poverty 
are manifold.  It is accepted  that  a major  element  is 
the existence  of inequality  which  arises  to a real 
degree  from  the  structure  of society  and  of the 
economy.  Inequality  arises  not  only  as between 
individuals  and  groups,  but  also  as between  regions 
within  countries  and  within  the  larger  Community. 
The national  reports  of governments  and  of private 
organizations,  presented  at the seminar  held  in June 
1974  pointed  to many  of the  proximate  causes  of 
poverty.  These  included  low  levels  of income  (in 
some  cases  also  low  levels  of pay);  the  special 
problems  of the  elderly;  high  dependancy  ratios  in 
the national  population;  rural  income-levels;  large 
family  size;  poor  physical  environment;  handicap, 
etc. 
2.8. The  Committee  feels  that  particular  attention 
should  appropriately  be devoted  to the  situation  of 
marginal  groups  within  society:  these  include,  in 
particular,  the very  old,  and  also,  those  afflicted  by 
long-term  illness,  individuals  and  their  families 
impoverished  because  of the  effects  of addiction  to 
drugs  or alcohol,  of gambling  and  of criminal 
behaviour;  those  who  suffer  special  deprivation 
because  they  live  in isolation  or in impoverished 
areas;  those  who  are  unable  to adjust  or cope  with 
the stresses  of modern  industrial  society.  Their  needs 
are of a special  kind  requiring  a very  real  expression 
of solidarity  and  care  at the  appropriate  levels  of 
society. 
2.9. It  is the  case  that  the  present  economic 
difficulties,  with  their  attendant  symptoms  of 
unemployment  and  inflation,  are  understandably 
concentrating  attention  on policies  for  the  labour 
market  and  for economic  stability.  Nonetheless,  it is 
necessary  to recognize  the  impact  of economic 
recession  on the  poor  and  disadvantaged  and  to 
accept  the  need  to maintain  the  impetus  of the 
proposed  actions  against  poverty. 
3. Long-term  aspects  of the programme 
3.1. The  Committee  believes  that  the  long-term 
aspects  of the  proposed  programme  must  be given 
special  emphasis.  The  Commission  states  that  the 
objective  of the  programme  'is to stimulate  schemes 
to combat  poverty  in the Member  States  by selecting 
a limited  number  of projects  ... which  can  identify 
the main  causes  of poverty  and  indicate  effective 
action  for  its alleviation'.  The  Commission  further 
7-. 11.75 Official  Journal  of the  European  Communities No C 255/21 
develops  this  point  when  it says  that  the programme, 
despite  the limitations  of its scale  and  resources,  'can 
serve  to develop  clearer  perceptions  of a complex 
problem  and  pioneer  new  techniques  for tackling  it, 
thus contributing  to  better  informed  and  more 
effective  policies  for the future'. 
3.2. It  must  be of the essence  of any  pilot  scheme, 
that the  lessons  to be  drawn  from  it and  the 
experience  gained,  can  be  generalized  and 
•furthermore  assimilated  into  the long-term  structures 
of social  services  and  can  provide  guidelines  for 
future  policies  at local,  national,  European  and 
international  level. 
3.3. The  Committee  wishes  to stress  that  the 
achievement  of this  important  objective  demands  the 
fullest  collaboration  with  national  administrations, 
involving  all  relevant  government  departments. 
Arrangements  should  be  made  with  both 
governmental  and  non-governmental  organizations  at 
local,  national  and  Community  level  to ensure 
collection  and  dissemination  of the  findings  and  to 
promote  discussion  of their  relevance  for policy. 
3.4. The  eventual  elimination  of poverty  will 
involve  long-term  structural  reform.  Such  reform  will 
require  a wider  access  to knowledge,  and  changes  in 
the distribution  of resources,  in the relative  influence 
of different  groups  in society  and,  not  least,  in the 
acceptance  of social  responsibilities.  Such  changes 
will be attained  only  over  a long  period  and  the 
present  programme  represents  a very  small  beginning. 
It must,  however,  be viewed  from  the  outset  as a 
contribution  to this  process. 
4. Action  orientation 
4.1. The  Committee  is of the  opinion  that  the 
programme  should  have  a real  and  fundamental 
action  orientation.  It is felt  that  the  pilot  projects 
should,  in genertl,  seek  to achieve  the  following 
objectives: 
— practical  intervention  in areas  of deprivation 
or among  groups  in need, 
— increased  public  awareness  of the  problem  of 
poverty, 
— contribution  to the evolution  of policy. 4.2. "With  these  considerations  in  mind,  the 
Committee  accepts  the Commission's  definition  of a 
pilot  scheme  as 'a limited  experimental  project  which 
tests out certain  actions  to explore  their  effectiveness 
in meeting  the needs  of persons  in poverty'. 
4.3. Any  successful  pilot  scheme  must  have  a 
well-defined  research  element  to permit  evaluation  of 
its practical  operation  and  to facilitate  the drawing  of 
appropriate  conclusions.  Innovation  in this  aspect  of 
action-research  should  be  encouraged  in  the 
programme. 
4.4. There  is room  in the overall  programme  for a 
limited  number  of pilot  studies  or research  projects 
related  to the  pilot  schemes  which  may  be usefully 
directed  towards  exploring  basic  aspects  of the causes 
and extent  of poverty. 
5. Motive  forces  of the programme 
5.1. The  Committee  wishes  to place  on record  its 
views  on a number  of basic  issues  which  it regards  as 
constituting  the motive  forces  of the  programme  of 
pilot  schemes.  These  may  not form  part  of the actual 
programme  and  will  probably  call  for attention  at the 
level  of national  governments  and  Community 
decision-making. 
5.2. Poverty  is not to be considered  primarily  as a 
matter  of statistical  fact  but  rather  as a matter  of 
profound  concern  for  individuals  and  groups  of 
individuals  in society,  and  as a result  of deep-seated 
social  and  economic  forces.  The  individual  should  be 
placed  at the centre  of social  attention  and  particular 
concern  should  be directed  towards  those  in real 
need:  the old,  the isolated,  the mentally  ill, orphans, 
the handicapped  and  other  fringe  members  of society. 
Children  in need  have  a special  call  on the resources 
and commitment  of society.  All  of social  policy 
should  seek  to help  individuals  to  achieve  a 
maximum  degree  of self-development  and  fulfillment. 
5.3. It  should  be recognized  that,  in considering 
poverty,  social  and  economic  issues  are  closely 
intertwined.  Policies  directed  towards  the  poor  and 
towards  areas  of deprivation  cannot  be effective  in 
isolation  in the absence  of appropriate  and  equitable 
policies  in areas  such  as economic  development 
subsidies  and  fiscal  matters.  This  inter-relationship  of 
No C 255/22 Official  Journal  of the European  Communities 7.11.75 
policy  is a matter  of very  real  concern  and  attention 
should  be directed  to the  rationalization  of the 
activities  of government  departments  and Community 
institutions  dealing  with  such  matters  as regional 
policy,  economic  strategy,  justice,  education,  culture, 
housing,  social  security  and all aspects  of health. 
5.4. The  concern  of policy  in general,  and  of the 
proposed  programme  of pilot  schemes,  must  be met 
alone  with  economic  poverty,  strictly  defined,  but 
also with  social,  cultural  and  spiritual  poverty  and 
with deprivation  arising  from  bad  environment, 
housing  deficiencies,  etc. 
5.5. It  is necessary  to see beyond  the aim  of simple 
economic  advance  and  to  see  individuals  as 
something  more  than  productive  or potentially 
productive  units  within  the economic  system.  Policy 
in this  area  must  be more  than  a mere  ancillary  to 
labour  policy. 
5.6. Crucial  to all policy  in the social  field  is the 
creation  and  maintenance  of strong  and  progressive 
public  opinion  and  awareness.  The  attitude  of the 
population  as a whole  to improved,  and  necessarily 
more  costly,  social  services  and  social  action 
provisions  will  act effectively  as constraints  which 
will have  to  be  taken  into  account  by 
decision-makers.  There  is in this question  a very  great 
challenge  to political  and  social  leadership  in the 
Community  and at 'national  level. and injecting  what  may  be seen  as 'risk  capital'  which 
may pay  off handsomely  in terms  of future  policy 
and action. 
7. Elements  of the programme 
7.1. The  Committee  accepts  the  view  of the 
Commission  that  there  is a need  for 'a framework  of 
reference  setting  out the most  appropriate  guidelines 
and criteria  for the selection  of the schemes  which 
could  qualify  for its support'  and  for a systematic 
approach  to the  implementation,  monitoring  and 
evaluation  of the various  schemes. 
7.2. The  Committee  has a number  of comments  to 
make  on  specific  items  dealt  with  in  the 
Commission's  outline  of criteria  and  working 
regulations. 
7.3. The  first  criterion  listed  is that  the schemes 
chosen  'shall  be of an innovatory  nature  whose 
results  can be expected  to have  a significant  impact 
on the  evolution  of policies...'.  The  Committee 
accepts  this  statement  but  is of the  opinion  that 
reference  should  be made  to the need  to achieve  some 
practical  results  among  the individuals  and  groups 
concerned. 
6. Specific  comments 
6.1. The  programme  of pilot  schemes 
6.1.1.  In  presenting  its  programme  of pilot 
schemes,  the Commission  has stated  clearly  that  this 
initiative  'cannot  itself  abolish  poverty'.  What  is 
being  proposed  is a limited  degree  of action,  but one 
which  can  have  valuable  effects  in the development 
of perceptions,  the improvement  of services  and  the 
pioneering  of new  political,  social  and  economic 
strategies  relevant  to the alleviation  and  elimination 
of hard-core  poverty. 
6.1.2.  The  Committee  recognizes  the limitations  of 
the proposed  programme  and  equally,  its potential 
for the  future.  It stresses  the  importance  of the 
Community  taking  some  responsibility  in this  area 7.4. This  point  is closely  related  to a most 
important  element  of the whole  programme  to which 
the Commission  makes  reference.  It is considered 
essential  by the  Commission  that  'all  schemes... 
should  involve  the active  participation  of the poverty 
group  itself  in the execution  of the scheme  and as far 
as possible  in its planning'.  This  aspect  of the overall 
programme  must  be given  priority  consideration  by 
the Commission  in carrying  out  the  practical 
planning  and  implementation  of the  pilot  schemes. 
The history  of intervention  projects  among  poverty 
groups  in the United  States  and  elsewhere  indicates 
the need  for such  participation  on a realistic  basis. 
7.5. Positive  and  continuing  participation  is 
essential  so that  the pilot  schemes  can help  the less 
articulate  groups  in European  society  to find  a voice 
in the guidance  and development  of policies.  The  fact 
that the poorer  groups  in society  find  great  difficulty 
in articulating  their  problems  has been  identified  as 
one of the  most  significant  aspects  of the  whole 
question  of poverty  in modern  societies. 
7.11.75 Official  Journal  of the European  Communities No C 255/23 
7.6. An  important  aspect  of the programme  should 
be to see how  existing  systems  serve  the population, 
looking  at the  situation  from  the  viewpoint  of the 
people  concerned,  rather  than  from  above.  Of 
significance  in this  connection  would  be the securing 
of the active  support  and  involvement  of the various 
categories  of economic  and  social  activity  and  also  of 
the many  kinds  of voluntary  and  Community-based 
organizations,  so that  an overall  local  Community 
commitment  to the schemes  can be assured. 
7.7. The  classification  of schemes  suggested  by the 
Commission,  whereby  there  are seen  to be four  main 
categories  of projects  (area  based  projects;  those 
focused  on categories  of persons,  those  related  to the 
creation  of specific  new  services  and  those  concerned 
with  existing  services  for  the  population  at large) 
with  a number  of pilot  studies  of research,  is 
acceptable  to  the  Committee  as  realistic  and 
comprehensive.  The  multi-disciplinary  approach 
suggested,  when  added  to this  broad  classification, 
should  ensure  a balance  in objectives  and means. 
7.8. The  Committee  accepts  the  basis  of 
Community  financial  support  as outlined  in the 
Commission  proposals.  It wishes  to stress  the 
importance  of the  provision  for additional  financial 
support  in  exceptional  cases.  The  types  of 
exceptional  case  proposed  are cross-national  projects 
and projects  promoted  by  'agencies  which  had 
otherwise  not  yet  attracted  adequate  outside 
resources'. 
7.9. The  Committe  considers  that  cross-national 
projects  are of great  importance  since  they  Will  deal 
with  problems  found  in more  than  one  Member  State 
or potentially  common  to a number  of the  States. 
The comparison  of similar  projects  or the  use  of 
different  methods  to reach  the  same  objective  in 
different  countries  can  result  in most  valuable 
insights. 
7.10.  Support  for independent  agencies  which  may 
lack financial  resources  should,  in appropriate  cases, 
be forthcoming  within,  the  framework  of this 
programme  of action  research.  In this  way,  a 
welcome  degree  of originality  of approach  may  be 
facilitated. 
7.11.  The  Committee  places  great  emphasis  on the 
need  for  careful  and  planned  evaluation  of the 
working  and  results  of the  pilot  schemes.  It accepts 
the Commission's  proposals  for  regular  progress 
reports  and  for publication  of the information  gained 
from  the  various  projects.  , In particular,  the 
Committee  regards  as  most  important  the Commission's  statement  that,  through  a proper 
system  of evaluation,  'the  analysis  of the problems  of 
poverty  and  policy  alternatives  will,  for the first  time, 
be given  a European  dimension'. 
7.12.  It  is hoped  that  the  Commission  will  come 
forward  at an early  stage  with  concrete  proposals  for 
the creation  of  a flexible  yet  representative 
mechanism  for  consultation  on the  operation  and 
evaluation  of the pilot  schemes.  In providing  for this 
necessary  element  in the  system,  the  Commission 
should  seek  to  involve  fully,  not  only  the 
representatives  of the  governments  of the  Member 
States,  but  also  the  various  public  and  private 
organizations  involved  and  the social  partners. 
7.13.  Finally,  the  Committee  recognizes  that  the 
question  of procedures  for  cooperation  with  the 
Member  States,  especially  in  respect  of  the 
submission  and  approval  of pilot  schemes,  may  give 
rise to certain  difficulties.  Having  regard  to the 
innovative  and  exploratory  nature  of the  whole 
exercise,  the Committee  is of the opinion  that,  while 
the system  must  give  due  emphasis  to  the 
prerogatives  of the  Member  governments  and  must 
be such  as to ensure  their  full  support  for all schemes 
undertaken,  there  should  be adequate  safeguard  for 
the position  of private  and  voluntary  organizations 
which  may  wislv  to promote  pilot  schemes  and  to 
seek the  financial  assistance  of the  Community  for 
relevant  projects  of action  research.  The  involvement 
of such  bodies  is crucial  to the success  of the overall 
programme. 
8. Duration  of the programme 
8.1. The  Commission  document  refers  to.  the 
duration  of the  programme  in the following  terms: 
'All the schemes  have  an anticipated  duration  of over 
two years.  Community  support  is envisaged  only  to 
the end  of 1976,  after  which  alternative  finance 
within  the  Member  States  will  be  necessary'. 
Reference  is made  also  to the amounts  envisaged  as 
adequate  to  meet  the  financial  needs  of  the 
programme  in 1975  and  1976. 
8.2. The  Committee  is most  concerned  at this 
limitation  of the Community's  financial  commitment 
to the programme.  While  it recognizes  that  the terms 
of the  Council  resolution  provide  for  the 
implementation  of pilot  schemes  during  the  period 
1974  to 1976,  it* draws  attention  to the resolution's 
No C 255/24 Official  Journal  of the  European  Communities 7.11.  75 
reference  to this  time-period  as 'a first  stage'.  The 
time  needed  to produce  meaningful  results  differs 
from  one  type  of scheme  to another.  Equally 
worthwhile  results  and  usable  findings  are unlikely  to 
emerge  from  projects  which  must,  because  of the 
likely  timing  of Community  decisions,  be limited  to 
little  more  than  one  year  of activity  in the  field. 
Furthermore,  it  is  unlikely  that  adequate 
arrangements  can  be made  in respect  of personnel 
and structures  for  pilot  schemes  of such  limited 
duration.  It should  be stressed  on the other  hand  that 
the very  nature  of pilot  schemes  demands  that  they 
should  not be open-ended  exercises,  since  evaluation, 
based  on results  and  geared  to long-term  policy 
creation,  is essential  to the whole  exercise. 
8.3. The  Committee  calls  for a commitment  by the 
Council  to review  the  progress  of the  programme 
during  1976,  with  a view  to making  adequate 
financial  and  other  provisions  for the continuance  of 
schemes  and  studies  which  are  determined  to be 
effective  and worthwhile.  Only  in this  way  can  there 
be proper  planning  and  implementation  of schemes 
which  can,  for  a small  cost,  produce  valuable  and 
long-term  results  of real  significance. 
8.4. The  Committee  fully  endorses  the view  of the 
Commission  that  'it is essential  that  these  schemes 
should  be free  to evolve  the directions  which  appear 
promising..Such  evolution  and  development 
demands  an adequate  time-horizon  and  appropriate 
support  and  financing.  It is essential  to recognize  that 
the initiation  of a pilot  scheme  can  represent  the 
beginning  of a social  process  that  may  not  be easily 
ended  or reversed. 
9. Preliminary  list of schemes  and  studies 
9.1. The  Commission  has  circulated  a list  of 20 
schemes  and  studies  which,  it is said,  should  be seen 
as a first  statement  of the schemes  which  are under 
consideration  for support.  Some  schemes  have  been 
submitted  or promoted  by the  relevant  services  of 
national  governments  while  others  have  been 
proposed  by  independent  bodies,  without  formal 
support  by the  national  governments.  The  list  as a 
whole  is to be regarded  as tentative  and  the Section 
does  not propose  to make  detailed  comments  on the 
individual  schemes  which  will  be further  elaborated 
in consultation  with  the  Member  States.  The 
Commission  proposes  also  to  keep  open  the possibility  of promoting  other  schemes  which  may  fit 
within  the criteria  outlined  in the programme. 
9.2. The  provisional  list  contains  both  Action 
Research  Projects  — 17  of the  20 -—  and  Pure 
Research  Projects  — three  in number.  The  Committee 
accepts  this  balance,  since  fundamental  research 
projects  with  practical  applications  have  relevant 
inherent  value  in terms  of the  development  of 
methodology  and,  in one  case,  represent  very 
significant  cross-national  collaboration. 
9.3. The  action-research  element  of the  overall 
programme  is subdivided  into  four  categories: 
projects  directed  mainly  towards  poverty-stricken  or 
poverty  prone  localities;  projects  directed  towards 
meeting  the  needs  of specific  populations;  projects 
directed  towards  providing  specific  services  for the 
needs  of persons  or families  and  projects  directed 
towards  adapting  organizations  or services  to meet 
needs  of persons  or families.  This  subdivision  was 
agreed  by those  consulted  by the  Commission  as 
providing  a useful  spread  of project-types  and  the 
Committee  accepts  this  view. 
9.4. The  Committee  wishes,  however,  to place  on 
record  its view  that  very  special  attention  should  be 
given  to projects  which  relate  to the long-term  relief 
of poverty,  rather  than  to the maintenance  of income. 
Schemes  which  face  up to the  underlying  structural 
problems  which  cause  poverty  and  militate  against  its 
elimination  such  as the  special  problems  of certain 
remote  regions,  are of the utmost  importance  to the 
realization  of  the  primary  objective  of  the 
programme.  Such  schemes  will  also  provide  a sound 
basis  for self-help  and  community  development  and 
will concentrate  on the special  problems  of children 
in need  and  of young  persons  who  are  particularly 
vulnerable. 
9.5. The  Committee  in anxious  that  projects  with 
genuine  cross-national  relevance  should  be awarded 
particular  attention.  Such  projects,  apart  from  their 
intrinsic  value  and  impact,  are most  likely  to provide 
results  which  will  be of significance  for the  future 
strengthening  of Community  social  policies. 
10. Conclusion 
The Committee,  in welcoming  and  supporting  the 
Commission's  proposals  for this  programme  of pilot 
schemes  and  studies,  wishes  to make  two  final  points. 
7.11.75 Official  Journal  of the European  Communities No C 255/25 
The Committee  emphasizes  the  importance  of the 
Community  role  in this  fight  against  poverty  and 
accepts  the Commission's  view  that  'the  proposal  to 
promote  pilot  projects  demonstrates  that  the 
Community  intends  to play  a role  which,  although 
limited  in the  resources  involved,  is potentially  of 
great  significance'.  Through  this  programme,  and 
with  adequate  arrangements  to ensure  follow-up 
action,  the  Community  can  begin  to demonstrate  a 
genuinely  human  face. The Council  now  has  the responsibility  of approving 
and ensuring  the  early  implementation  of  the 
programme  of pilot  schemes.  The  Section  is of the 
opinion  that  approval  should  be forthcoming  without 
delay,  so as to permit  an early  start  to work  on the 
ground.  This  approval  should  be  given  in an 
appropriate  legal  form  so as to ensure  a sound  basis 
for the  long-term  development  and  Community 
support  of a small,  but  potentially  most  important, 
advance  towards  a comprehensive  social  policy  of 
benefit  to all the people  of the Member  States. 
Done  at Brussels,  24 April  1975 
The Chairman 
of the Economic  and  Social  Committee 
Henri  CANONGE 
Opinion  on the proposal  for a Council  Directive  on harmonization  of the legislation  of 
Member  States  on the retention  of the rights  and  advantages  of employees  in the case  of 
mergers,  takeovers  and  amalgamations 
The text  referred  to the Committee  was  published  in Official  Journal  of the European 
Communities  No  C 104  of 13 September  1974,  page  1. 
A. LEGAL  BASIS  FOR  THE  OPINION 
On 14 June  1974,  the Council  referred  the abovementioned  proposal  to the Economic 
and Social  Committee  under  Article  100  of the  Treaty  establishing  the  European 
Economic  Community. 
B. OPINION  OF THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  drew  up its Opinion  at its 129th  plenary  session, 
held in Brussels  on 23 and  24 April  1975. 
The Opinion  is published  below: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE, 
Having  regard  to the referral  on 14 June  1974  by the 
Council  of the  European  Communities  of the 
proposal  for a Council  Directive  on harmonization  of 
the legislation  of the Member  States  on the retention of the rights  and  advantages  of employees  in the case 
of mergers,  takeovers  and  amalgamations; 
Having  regard  to  the  Treaty  establishing  the 
European  Economic  Community  and  in particular 
Article  100  thereof;