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COMMISSION OFTHEEUROPEAN COMMUNITIES
COM(80)351final
Brussels.27thJune1980
GUIDELINES FORCOMMUNITY ACTION
INTHEFIELDOFTEMPORARY WORK
(AgencyworkandContractsforalimitedperiod)
(Communication fromtheCommission )
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GUIDELINES FORCOMMUNITY ACTIONINTHEFIELDOFTEMPORARY WORK
(Agencyworkandcontractsforalimitedperiod)
INTRODUCTION
1.ThisCommunication totheStandingCommitteeonEmployment
focussesonthetwomostcommonformsoftemporarywork:contracts ,
foralimitedperiodandagencywork.
(a)Theexpression "contractsforalimitedperiod"relatesto
asituationwhereafirmestablishes adirectlegallinkwiththeworker
andwheretermination ofsuchacontractisdetermined byobjective
conditions,suchasreachingacertaindate,completionofassignment,
returntoworkofanemployeewhohasbeentemporarilyreplaced.
(b)Inthecaseof"Agencywork",atriangularrelationship isset
upbetweentheuserundertaking,theemploymentagencyandtheworker.
Inthiscase,thetemporaryworkerispaidbytheemploymentagency,
butheistemporarily assignedtotheuserundertaking (*).
2.ThreeimportantfactorsjustifyCommunityactiontosupportthe
initiatives takenbyeachoftheMembercountriesoftheCommunity.
(a)Communityactioninthisfieldisjustifiedinthecontext
ofeffortstoimplementCommunitypolicyonthereorganization ofworking
time.(**)Restrictions ,onsystematicovertimeworkingwillnotincrease
thenumberofpermanentjobsas-longasfirmscanmakerepeateduse
ofagencyworkes,orworkersoncontractsforalimitedperiod.
(b)Nationallegislation ontemporaryworkmaydifferwidelyandeven
conflict.Thiscanconstituteseriousobstaclestotheunityofthe
Communitylabourmarket?ndworkers'freedomofmovement.Moreover,
thecomplexity anddiversityofnationallegislations canonoccasion .
beexploitedbyundertakings,particularly inthecaseofcross-frontier
agencywork(thatiswhereafirmin.oneMemberStatemakesuseofagency
workerssuppliedbyanagencylocatedinanotherCommunitycountry).
(*)Therearealsootherlessusualformsoftemporarywork:casual
subcontracting andfreelendingofemployees (seeAnnexI).
-(**)SeeCouncilResolution' of18December1979(OJC2of4.1.1980).

Xc)AIL theCommunity countries arefaced with theneed to
cope with theproblems that inevitably accompany theexpansion oftemporary
work inaneconomy that hasmoved from full employment tounder-employment .
Atpresent ,temporary work isnolonger solely avoluntary form of
employment .Inthemain ,today ,itisatype ofemployment entered into
unwillingly byworkers seeking apermanent job .
- TheStanding Committee onEmployment drew attention tothe
importance ofthis question atitsmeeting on9October 1979 .
Inhisconclusions ,the Chairman emphasized that the Commission should
study this question inclose cooperation with the two sides ofindustry .
*
Asaresult ofthis recommendation ,astudy wasentrusted to'two ,
independant experts <*). Several consultations took place with theGroup
ofDirectors-General ofEmployment ,theGroup ofDirectors ofEmployment
Agencies andthetwo sides ofindustry .The results ofthis study and
these consultations have provided thebasis forthis Communication .
3. The first part ofthe Communication contains ashort economic
and social analysis oftemporary work .Thesecond part sets out theaims
andguidelines foraction advocated bytheCommission .
I.ECONOMIC AND SOCIAL ANALYSIS OFTEMPORARY WORK
4. Despite their difference from the legal point ,ofview ,employment
on contracts for alimited period andagency work canbeanalysed in
similar terms from the economic and social viewpoints .
5.' From theeconomic viewpoint ,employment oncontracts for alimited
period andagency work fill thesame need :industry 'sneed for
flexibility toreact totemporary fluctuations intheir permanent work
force orindemand .There aremany ways inwhich these twoforms of
temporary work maysubstitute foreach other :employment oncontracts for
a'limited period canoften replace agency work (**). Inpractice ,however ,
thepublic employment services were not inthepast ,andarestill not,
inaposition toprovide sufficient temporary workers tofill allthe
temporary labour requirements ofindustry .This weakness onthepart of
thepublic employment services isoneofthemain reasons forthesuccess of
private agencies providing agency work .
(*) "Temporary work intheEEC countries :stocktaking andproposals ,by
Mr.DRUBIGNY andMr.BLANPAIN ,available inFrench ,English endGerman .
(**) Theconverse has less validity since agency work ismainly limited
to short-term assignments .Ontheother hand ,contracts for alimited
period aresometimes issued forlong periods that mayeven extend to
several years' inthecase ofacontract related toaspecific task .

Abanonagencywork,ascalledforbycertainpartiesat'
themeetingoftheStandingCommitteeonEmploymentof9October1979,.
wouldcertainlydisrupttheeconomicsectorstha^:atpresentmakeuseof
thisfacilityintheabsenceofanappropriatepublicservice.Inaddi­
tion,excessivelyrigidrestrictions onagencyworkandcontractsfora
limitedperiodwouldtendtohavetheoppositeofthedesiredeffect.
Tomeettheirneedforflexibility,firmswouldbelikelytofallback
ontheuseofsystematicovertimeworking(whichitishopedtolimi.t
inconnectionwiththereorganization ofworkingtime)orotherlegal
formsoftemporarywork,suchascasualsubcontracting orfreelending/
ofemployees (neitherofwhichisnecessarily tobeencouraged )or•
illegalforms(whichmustbefoughtagainst).
6.FromthesociaLpointofview,itisimportantthatthe
flexibility requiredibyfirmsshouldnotbeachievedattheexpenseof
workerstemporarily intheir.employ(thoseholdingcontractsfora
limitedperiod "andagencyworkersinparticular).- .
-Inatimeoffullemployment,temporaryworkInsweredtheneed
foraformofemploymentadaptedtothoseworkersunwillingorunable
totakeupapermanentjob:forexample,youngpeopleduringschool
holidaysorwomenwhoassumefamilyresponsibilities .Itwasduring
thistimethatmostofthelegislation concerningagencyworkwas
adopted,thelegislators' mainconcernbeingtocontrolagencyworkto
ensurethatitdidnotdisturbthestabilityofthelabourmarket
(inparticular,throughraisingpayratestodrawpermanentworkersaway
fromcertainfirmsforre-employment asagencyworkersinotherforms).'
Atthepresenttime,withthehighunemployment prevailingin
Communitycountries,temporaryworkisnolongerchieflyavoluntaryform
ofemployment.Withrespecttoworkerssuppliedbyagencies,recentsurveys
showthatmostofthemwereobligedtotakeupagencyworkwhileseeking
apermanentjob(*).Withrespecttoworkersoncontractsforalimited
periodnofiguresareavailableexceptinFrancewheretheunemployment
statistics showthatin1979,25%ofworkersregistering asunemployed
didsoattheexpiryofacontractforalimitedperiodasagainst
17%in1976.
(*),ThesesurveyswerebroughttotheCommission'snoticefollowing
itsrequestforinformationexpressedatthepreliminary
consultation withtheemployers'representatives .Thesurveys
werecarriedoutinFrancein1979(where1/3rdoftemporary
(agency)workersarevoluntary)andinBelgium1973(where1/4of
suchworkersarevoluntary).

This recent information with respect totemporary works calls for
areaction byMember States :andthetwo sides ofindustry .Priority
should begiven tomaking sure that these workers areprotected in
their employment .Thedevelopment oftemporary work should not lead
tothe Lowering ofworkers' status orrender employment precarious .
Moreover ,permanent employment should continue tobethe -
rule andtemporary work theexception ,like thefluctuations that
give rise toit.-Forexample ,theuseoftemporary labour
should notbeameans ofcircumventing current social provisions
(calculation ofthestatutory number ofstaff representatives ,for
instance )orofweakening thenegotiating position ofthepermanent
work force (forexample ,incase ofstrike ).Such evasions ,although
exceptional ,should beproscribed .
II.COMMUNITY AIMS AND GUIDING PRINCIPLES
7. Inthe light ofthese economic andsocial considerations ,any
action inrespect oftemporary work should seek toachieve four aims :
(a)employers' operational flexibility should bemaintained ,inparticular
where th?y aresubject totemporary fluctuations instaff numbers
oreconomic activities ; ^
(b)theuse oftemporary labour should continue tobetheexception ,and
permanent employment the rule ;
(c)employment protection fortemporar /workers (those oncontract
for alimited period andagency workers )should beassured ;
(d)public employment services should beinabetter position torespond
toworkers' andemployers' temporary employment requirements and
should play arole inaccordance with therecommendations of;the
International Labour Organization .
8. Toachieve these aims ,theCommission proposes anumber ofguiding
principles forCommunity action .These proposals donot ,prejudge themeans
tobeimplemented (code ofconduct ,collective agreement orcompulsory
norms atnational orCommunity level )*

-5-
9.Withrespecttoagencywork,theCommission recommends the
following linesofaction : ,.
ELIMINATION OFABUSES. ■
(a)Groundsjustifying theuseofagencyworkshouldbelimitedtothe
twofollowing setsofcircumstances temporary dropinthepermanent
workforce(sickness,holidays,departures ,retirement ,resignation ,...)
oratemporary increase-exceptional orseasonal-inactivity (increase
inorders,launching ofanewactivity,performance ofanexceptional ,
specialized task,...).
Thiscentralprinciple shouldbereinforced bythefollowing :-
(b)anyemployer usingagencyworkers _shouldinformthestaffandtheir
representatives .Theinformation shouldbegivenbeforehand and
consultations heldwithstaffrepresentatives whenseveral workers
fromagencies arecalledonatthesametime;
(c)atimelimitshouldbeimposed ontheuseofagencyworkersfor-
agivenjob.Thesameappliestoanyextension oftheir
assignment ; ,
(d)wheretheemployer'ssocialobligations aredetermined onthebasis
ofthenumberofemployees ,agencyworkersshouldbetakeninto
account;
(e)theuseofagencyworkerstoreplacepermanent workers onstrike
should bebanned.
B.PROTECTION OFAGENCY WORKERS -
(f)Theemployment contract concluded betweentheagency'workerandthe
agencyshouldbeforanindefihite period.Failingthat,the
contract maybeforafixedperioddetermined byobjective
conditions (givendateofexpiry,completion ofagiventask,return
ofthepermanent workerbeingtemporarily replaced )toobviate
arbitrary unilateral decisions .Thecurrentpractice incertain'
MemberStates,wherebytemporary employment agencies donotinform
theiragencyworkersoftheconditions underwhichtheiremployment
contract maybeterminated ,shouldbebanned.
(g)principal characteristics oftheworktobeprovided byagency
workerstotheuserundertaking shouldbespecified inwriting;
■(h)-theremuneration ofagencyworkersshouldbedetermined inthe
contextofcollective agreements .Failingthis,suchremuneration
shouldbealignedwiththatofthepermanent workersintheuser
undertaking ; ,
(i)thestaffamenities provided bytheuserundertaking (e.g.canteens,
showers,,...)shouldbeaccessible toagencyworkers;
(pagencyworkers (beyondacertainperiodofemployment intheuser
undertaking )shouldbegivenpriority (overaperiodtobespecified )
iftheundertaking recruits newpermanent' staffwiththesameskills;

-6-
(k)intheeventofbankrupty orinsolvency oftheagencyproviding
agencywork(withrespecttothepaymentofwagesorsocial
security contributions )theinterests oftheworkersshouldbe
safeguarded ,eitherbyrequiring agencies tocontribute toa
guarantee fundorbyproviding forthesecondary liability of
theuserundertaking .
C.'SUPERVISION OFTEMPORARY EMPLOYMENT AGENCIES,INPARTICULAR
CROSS-FRONTIER ACTIVITIES ■
I
(I)summarystatistical information relating totheagencyworkforce
(including cross-frontier workers)andtheduration of
assignments shouldbesupplied tothecompetent employment services
reasonably frequently (forexample,everysixmonths);
(m)anyagencywishingtoprovideagencyworkshouldapplyfor
priorauthorization fromtheappropriate national authority ;
(n)priorauthorization shouldbeobtained fromthecompetent
national authorities inthehostcountry byanyagencywishingto
engageincross-frontier agencywork(1);
(o)anyagencysupplying cross-frontier agencyworkersshouldbe .
compelled toobserve therulesineffectinthehostcountry;
(p)toensureobservance oftheaboveprinciples ,particularly inthecase •
ofcross-frontier agencywork,inspection visitstotheuser
undertaking shouldbeauthorized ;
(q)anyfirmusingworkerssupplied shouldbeliabletopenalties tobe
specified bytheMemberStates.Directcooperation betweentheMember
Statesshouldbedeveloped withrespecttocross-frontier agencywork.
10.Withrespecttoemployment oncontracts foralimitedperiod,the
Commission recommends thatprinciples similartothoseset,outaboveshouldbe
adopted .
A.ELIMINATION OFABUSES WITHRESPECT TOCONTRACTS FORALIMITED PERIOD
(a)groundsjustifying theuseofcontracts foralimitedperiodshouldbe
limitedtothetwofollowing setsofcircumstanced :temporary reduction
inthepermanent workforceandtemporary increase-exceptional or
seasonal-inactivity .Thiscentralprinciple shouldbereinforced by
thefollowing :
(b)anyfirmemploying workers onacontractforalimitedperiodshould
informthestaffandtheirrepresentatives ;
(c)timelimit:bydefinition ,contracts foralimitedperiodareforperiods
limitedbyobjective conditions (reaching acertaindate,completion ofa
giventask,returnofthepermanent workerwhoistemporarily absent).
Renewalofsuchcontracts shouldbeLimited andabanplacedonthe
awardofsuchcontracts inseries;, .
(d)whereanemployees socialobligations aredetermined onthebasisofthe
numberofhisemployees,workers oncontracts foralimitedperiodshould
betakenintoaccount;
(1)Toensurethattheprovisions relating to•freedomofmovement ofworkers and
freedomtoprovideservicesareobserved,therulesgoverning suchauthoriza­
tionshouldnot-sakeitacredifficult tousecross-frentier than
national agency wor'frfrrs'l •' • •••

-7-
(e)theuseofworkersoncontractsforaLimitedperiodtoreplace
permanentworkersonstrikeshouldbebanned;
B.PROTECTION OFWORKERSUNDERCONTRACTS FORALIMITEDPERIOD
(f)contractsforalimitedperiodconcludedbetweenworkerandemployer
shouldclearlystateinwritingthenatureoftheworktobe
performedandtheobjectiveconditionsgoverningtermination of.
thecontractand/ifapplicable,thedurationofthetrialperiod;
(g)remuneration andsocialbenefitsgrantedtoworkersoncontracts
foralimitedperiodshouldbespecifiedinthecollective
agreementapplicabletotheundertaking orsector.Failingthis,
theyshouldbealignedwiththoseapplicabletothepermanent
employees;
Ch)workersoncontractsforalimitedperiod(beyondagivenperiodof
employment )shouldbegivenpriority(overaperiodto.be
specified)iftheundertakingrecruitsnewpermanentstaffwiththe
sameskilis.
C.SUPERVISION OFTHEUSEOFCONTRACTS FORALIMITED'PERIOD
(i)summarystatistical information concerningthenumberofworkers
employedoncontractforalimitedperiodshouldbecollectedbythe-
competentdepartments atreasonablyfrequentintervals (forexample,
everysixmonths).
11.Lastly,publicemploymentservicesshouldbeinapositionto
accomplishtheirmissionofregulatingthelabourmarketandthetemporary
worksectorinparticular. ^
Withrespecttoagencywork,actioncouldbemodelledonthe
experienceofthoseMemberStatesthathavesetuppublicservices
providingagencywork,eitherinthecontextofpublicemploymentagencies
orbysettingupnon-profitmakingundertakings . •_
Withrespecttotemporaryplacement,thepublicemploymentservices
shouldsetupspecialized departments capableofmeetingtheneedsof
employersandworkerswithrespecttocontractsforalimitedperiod.
χ
xx
12.ThepartiespresentatthemeetingoftheStandingCommittee on
Employmentareaskedtostatetheirpositionwithrespecttotheaimsand
suggestedguidelinessetoutinthisCommunication withaviewtodetermining
theactionstobetakenwithregardtocollectiveagreements,national
legislation andatCommunitylevel.

FRANCAIS ENGLISH OEUTSCH ITALIANO NEDERLANDS I DANSK
I.TRAVAIL TEMPORAIRE
I=(a)+(b)+(c)+(d >
(a)Contrat &durée
déterminée
(b)Travail
intérimaire
(c)Sous-traitance
temporaire
(d)Prêtgratuit de
main-d'oeuvreI.TEMPORARY WORK
I=(a)+(b)+(c)+(d )
(a)Contract fora
limitedperiod
(b)Agencywork
(c)Casual sub­
contracting
(d)Freelendingof
employeesI.ZEITARBEIT
I=(a)+<b)+(c)+(d >
(a)8efristeter
Arbeitsvertrag
(b)Gewerbsmässige
Arbeitnehmer -
Überlassung
(c)Zeitueilige Sub-
unternehmerver -hältnisse
Cd)Kostenloser Ar-
beitnehmerver -
leih1.LAVORO TEMPORANEO
I=<a)+(b)+(c)+<d )
(a)Contratto atempo
determinato
(b)Lavoro ''
interimario
(c)Subappalto
temporaneo
(d>Prestitogratuito
dimanodoperaI.TIJDELI JKEARBEIC
I-<a)+(b)+(c)+(di
(a)Arbeidsovereen­
komstvoor
bepaalde duur
(b)Uitzendarbeid
(uitzendkrachten )
(c)Onderaanneming
tydelyke
ld)Kostenloze ter
beschikking stel­
lenvanwerk­
nemersI.MIDLERTIDIG
BESKÆFTIGELSE
I=(a>+(b)+(c)+(d )
(a>Tidsbegrsnset
anssttelse
(b)Vikarbureauarbe jde
(c)Midlortidig
underent reprise
(d)GratisudlOnaf
arbejdskraft
II.
W'
(a)Travailleur
intérimaire
(b)Entreprise
intérimaire
(c)L'entreprise
utilisatriceII.
(a)Agencyworker
(b)Agencyproviding
agencywork
(c)Userundertakingii.
(a)Leiharbeitnehraer
(b)Verleihunter-
nehmen
(c)EntleihunternehmeiII.
(a)Lavoratore
interimario
(b>Impresafornitri­
cedimanodopera
>(c)Impresa
utilizzatriceII.
(a)Uitzendkrachten
(b)Uitzendbureau
(c)InlenerII.
(a)Vikar "I
(b)Vikarbureau
(c)Brugervirksooheder
EXAMPLES :Initsdataprocessing department;toreplacefourofitsprogrammers *pntrainingleave,firmXcouldmakeuseof
fourtypesoftemporary work:4
(a)FirmXrecruits aworkerwithwhomitconcludes acontractforalimitedperiod
^I.(b)FirmXcallson"Manpower",whichsupplies anagencyworker
I.(c)FirmXcallson"Computer",asub-contracting firm,tocarryoutaspecificprogramming taskwhichshouldhave
beendonebyoneofthefourabsentemployees .Thesub-contractor ,"Computer",temporarily assigns oneofits
programmers tofirmXtocarryoutthespecifictaskandmakethenecessary adjustments tofirmX'sequipment
I.(d)FirmXcallsonfirmY,whichbelongstothesameconsortium,andrequeststhefreeandtemporarylendingofone
ofitsprogrammers . T ,