P6_TA(2005)0203

Employment guidelines of the Member States *

European Parliament legislative resolution on the proposal for a Council decision on guidelines for the employment policies of the Member States (COM(2005)0141 — C6-0111/2005 — 2005/0057 (CNS))

(Consultation procedure)

The European Parliament,

- having regard to the Commission proposal to the Council (COM(2005)0141) [1],

- having regard to Article 128 of the EC Treaty, pursuant to which the Council consulted Parliament (C6-0111/2005),

- having regard to Rule 51 of its Rules of Procedure,

- having regard to the report of the Committee on Employment and Social Affairs and the opinion of the Committee on Women's Rights and Gender Equality (A6-0149/2005),

1. Approves the Commission proposal as amended;

2. Calls on the Commission to alter its proposal accordingly, pursuant to Article 250(2) of the EC Treaty;

3. Calls on the Council to notify Parliament if it intends to depart from the text approved by Parliament;

4. Asks the Council to consult Parliament again if it intends to amend the Commission proposal substantially;

5. Instructs its President to forward its position to the Council and Commission.

TEXT PROPOSED BY THE COMMISSION | AMENDMENTS BY PARLIAMENT |

Amendment 1

Recital 1a (new)

| (1a) The structure of the integrated guidelines should result in the better effectiveness of the Lisbon strategy, with due respect for economic, social and environmental policy. |

Amendment 2

Recital 2

(2) The Lisbon European Council in 2000 launched a strategy aimed at sustainable economic growth with more and better jobs and greater social cohesion, with long term employment targets, but five years later the results are mixed; | (2) The Lisbon European Council in 2000 launched a strategy aimed at sustainable economic growth with more and qualitatively better jobs and greater social cohesion and inclusion, with the objective of full employment in the long term, but five years later these objectives remain far from being achieved, it is clear that substantially greater efforts are needed in order to achieve the employment targets set by 2010; |

Amendment 3

Recital 3

(3) The presentation of an integrated package of Employment Guidelines and Broad Economic Policy Guidelines contributes to refocusing the Lisbon Strategy on growth and employment. The European Employment Strategy has the leading role in the implementation of the employment objectives of the Lisbon strategy. | (3) The presentation of an integrated package of Employment Guidelines and Broad Economic Policy Guidelines contributes to refocusing the Lisbon Strategy on sustainable development and employment, giving a fresh impetus to the environmental dimension, thus making it possible to achieve its objectives. The employment objectives of the Lisbon Strategy, complemented by cohesion and social inclusion objectives, with overall gender-equality and the principle of non-discrimination, form the basis of the European employment strategy. |

Amendment 4

Recital 4

(4) In line with the conclusions of the Spring European Council of 22 and 23 March 2005, the objectives of full employment, job quality, labour productivity and social cohesion must be reflected in clear priorities: to attract and retain more people in employment and modernise social protection systems; to improve adaptability of workers and enterprises and the flexibility of labour markets; and to improve investment in human capital through better education and skills. | (4) In line with the conclusions of the Spring European Council of 22 and 23 March 2005, the objectives of full employment, job quality, labour security and productivity and social cohesion and inclusion must be reflected in clear priorities: to include more people in the labour market, promoting decisions that contribute to the reconciliation of family life and work, and equal opportunities; to improve the employability of workers and the organisational adaptability of enterprises, thus enhancing the flexibility and security of labour markets; to promote social inclusion through the occupational integration of disadvantaged workers, women, young people and older people, to improve investment in human capital through better education and skills, paying special attention to innovation and technological development, and to open up new areas for jobs. All this will form a solid basis for modernisation and for ensuring the solidarity and sustainability of social protection systems. |

Amendment 5

Recital 5

(5) The Employment Guidelines should be fully reviewed only every three years, while in the intermediate years until 2008 their updating should remain strictly limited. | (5) The Employment Guidelines should be fully reviewed only every three years; exceptionally, they could be updated during the intermediate years until 2008. |

Amendment 6

Recital 6

(6) The employment recommendations adopted by the Council on 14 October 2004 remain valid as background reference. | (6) The employment recommendations adopted by the Council on 14 October 2004 remain valid as background reference and are supplemented by this decision. |

Amendment 7

Article 2

All aspects of the guidelines shall be taken into account in the employment policies of the Member States and be reported upon in the Lisbon National Programmes submitted annually. | All aspects of the guidelines, which should be interpreted widely to include the vital aspects of social and employment policy, shall be taken into account in the employment policies of the Member States, which shall submit a report on the implementation of those policies and their effects in terms of the rate of employment in general and the rate of employment of women and older people in particular. |

Amendment 8

Annex, Section 1, paragraph preceding Guideline 16

Achieving full employment, and reducing unemployment and inactivity, by increasing the demand for and supply of labour, is vital. This goes hand-in-hand with improving the attractiveness of jobs, quality at work and labour productivity growth, and reducing the share of working poor. Synergies between quality at work, productivity and employment should be fully exploited. Determined action is needed to strengthen social inclusion, prevent exclusion from the labour market and support integration in employment of people at a disadvantage, and to reduce regional disparities in terms of employment, unemployment and labour productivity, especially in regions lagging behind. Equal opportunities, combating discrimination and gender mainstreaming are essential for progress. | Achieving full employment, and reducing unemployment and inactivity, by increasing the demand for and supply of labour, is vital. This goes hand-in-hand with improving the attractiveness of jobs, quality at work and labour productivity growth, thus contributing to the competitiveness of the European economy. Synergies between quality at work, productivity and employment should be fully exploited. Determined action, together with the appropriate decisions, is needed to strengthen social inclusion, prevent exclusion from the labour market and support integration in employment of people at a disadvantage, women, young people and older people, and to reduce regional disparities in terms of employment, unemployment and labour productivity, especially in regions lagging behind. Equal opportunities, including between legal immigrants and non-immigrants, combating all kinds of discrimination and gender mainstreaming are essential for progress in these matters. |

Amendment 9

Annex, Section 1, paragraph preceding Guideline 17

Raising employment levels is the most effective means of generating economic growth and promoting socially inclusive economies whilst ensuring a safety net for those unable to work. Promoting a new lifecycle approach to work and modernising social protection systems to ensure their adequacy, financial sustainability and responsiveness to changing needs in society are all the more necessary because of the expected decline in the working-age population. Special attention should be paid to tackling the persistent employment gaps between women and men, and the low employment rates of older workers and young people, as part of new intergenerational approach. Action is also required to tackle youth unemployment which is on average double the overall unemployment rate. The right conditions must be put in place to facilitate progress in employment, whether it is first time entry, a move back to employment after a break or the wish to prolong working lives. The quality of jobs, including pay and benefits, working conditions, job security, access to lifelong learning and career prospects, are crucial, as are support and incentives stemming from social protection systems. The implementation of the European Youth Pact should be a contribution to a lifecycle approach to work. | Economic growth makes it possible to raise employment levels and is the most effective basis for a social economy that promotes social inclusion whilst ensuring a safety net for those unable to work. Promoting a new lifecycle approach to work through the possibility of lifelong learning and modernising social protection systems to ensure their adequacy, financial sustainability and responsiveness to changing needs in society are all the more necessary because of the new and changing needs in society, the new forms of marginalisation, particularly domestic violence, and the expected decline in the working-age population. Special attention should be paid to, and appropriate measures should be taken to tackle, the persistent labour and wage gaps between women and men, and the low employment rates of older workers and young people, as part of new intergenerational approach. The right conditions must be put in place to facilitate progress in employment, whether it is first time entry, a move back to employment after a break or the wish to prolong working lives. The quality of jobs, including pay and benefits, working conditions, health and safety at work, job security, access to lifelong learning and career prospects, are crucial, as are support and incentives stemming from taxation and social protection systems. The implementation of the European Youth Pact and the coordination of the initiatives it provides for should be an effective contribution to the integration into working life and society of young people, to solidarity between the generations and to strengthening the competitiveness of the European economy based on skills, knowledge and respect for the lifecycle. |

Amendment 10

Annex, Section 1, Guideline 17

Guideline. Promote a lifecycle approach to work through: a renewed endeavour to build employment pathways for young people and reduce the youth unemployment; resolute action to eliminate gender gaps in employment, unemployment and pay; better reconciliation of work and private life, including the provision of accessible and affordable childcare facilities and care for other dependants; modern pension and healthcare systems, ensuring their adequacy, financial sustainability and responsiveness to changing needs, so as to support participation in employment and longer working lives, including appropriate incentives to work and discourage early retirement; support for working conditions conducive to active ageing (Integrated guideline No 17). See also integrated guideline "To safeguard economic sustainability" (No 2). | Guideline. Adapt work to the different stages of people's lives through: a renewed endeavour to build employment pathways for young people and reduce the youth unemployment, providing young people with high quality and individually appropriate education and vocational training; resolute action to combat workplace discrimination, eliminating gender gaps in employment, unemployment, pay and promotion, and facilitating employment for female victims of domestic violence; better reconciliation of work and private life, encouraging the equal sharing of family responsibilities, support for single-parent families, and recourse to flexible working models for both women and men, parental leave, and, in particular, the provision of accessible and affordable childcare facilities and care for other dependants in line with the targets set by the 2002 Barcelona European Council; modern and better pension and healthcare systems, ensuring their adequacy, financial sustainability and responsiveness to changing needs, so as to support participation in employment and, on a voluntary basis, longer working lives, including appropriate incentives to work and discourage early retirement; support for working conditions conducive to active ageing, especially gradual and flexible retirement (Integrated guideline No 17). See also integrated guideline "To safeguard economic sustainability" (No 2). |

Amendment 11

Annex, Section 1, paragraph preceding Guideline 18

Facilitating access to employment for job seekers, preventing unemployment and ensuring that those who become unemployed remain closely attached to the labour market and increase their employability are essential to increase participation and combat social exclusion. This requires breaking down barriers to the labour market by assisting with effective job searching, facilitating access to training and other active labour market measures and ensuring that work pays, as well as removing unemployment, poverty and inactivity traps. Special attention should be paid to promoting the inclusion of disadvantaged people in the labour market, including through the expansion of social services and the social economy. The unemployment gaps for people at a disadvantage, as well as between non-EU and EU nationals, remain too high and should be substantially reduced in line with any national targets. Combating discrimination, promoting access to employment for disabled people and integrating migrants and minorities are particularly essential. | Facilitating access to employment for job seekers, preventing unemployment and ensuring that those who become unemployed remain closely attached to the labour market and increase their employability are essential to increase participation of society in the labour market and combat social exclusion. This requires breaking down barriers to the labour market by assisting with effective job searching, facilitating access to training and other active labour market measures and ensuring that work pays, as well as removing unemployment, poverty and inactivity traps. Special attention should be paid to promoting the inclusion of disadvantaged people in the labour market, including through the expansion of social services and the social economy. The unemployment gaps for people at a disadvantage, women, young people and older people, as well as between non-EU and EU nationals, remain too high and should be substantially reduced in line with any national targets. Combating discrimination in working life, in particular as regards access to employment, vocational training and promotion, and working conditions, promoting access to employment for disabled people and integrating immigrants and minorities are particularly essential. |

Amendment 12

Annex, Section 1, Guideline 18

Guideline. Ensure inclusive labour markets for job-seekers and disadvantaged people through: active and preventive labour market measures including early identification of needs, job search assistance, guidance and training as part of personalised action plans, provision of social services necessary to support the labour market inclusion of disadvantaged people and contribute to social and territorial cohesion and to the eradication of poverty; and continuous review of tax and benefit systems, including the management and conditionality of benefits and reduction of high marginal effective tax rates, with a view to making work pay and to ensuring adequate levels of social protection (Integrated guideline No 18). | Guideline. Ensure open labour markets for job-seekers and disadvantaged people, women, young people and older people, through: active employment measures and preventive measures to combat unemployment, including early identification of needs, action to create new sources of employment in such areas as social services and healthcare, the environment and new technologies, job search assistance, guidance, training and retraining as part of personalised action plans, provision of social services necessary to support the labour market inclusion of disadvantaged people and contribute to social and territorial cohesion and to the eradication of poverty; promoting the development of the cooperative and voluntary sectors and continuous review of tax and benefit systems, including the criteria applied and their management, and reduction of high marginal effective tax rates, with a view to making work pay and to ensuring and sustaining adequate levels of social protection. A special effort must be made for those with any kind of disability, developing policies to encourage their employment and the creation of an accessible environment. Action must also be taken to promote the full integration of immigrants in society and the workplace and to eradicate racism, all forms of discrimination and harassment in the workplace and society. (Integrated guideline No 18). |

Amendment 13

Annex, Section 1, Guideline 19

Guideline. Improve matching of labour market needs through: the modernisation and strengthening of labour market institutions, notably employment services; greater transparency of employment and training opportunities at national and European level to facilitate mobility across Europe; better anticipation of skill needs, labour market shortages and bottlenecks; appropriate management of economic migration (Integrated guideline No 19). | Guideline. Improve the management of employment through: the modernisation and strengthening of labour market institutions, notably employment services; greater transparency and accessibility of employment and training and retraining opportunities at national and European level so as to reduce the time spent in the transition between jobs; development of language teaching to facilitate mobility and exchange of knowledge across Europe; better anticipation of skill needs, labour market shortages and bottlenecks; appropriate and rapid management of migration movements in the spirit of the Tampere Agenda. (Integrated guideline No 19). |

Amendment 14

Annex, Section 1, Guideline 19a (new)

| Guideline. Prevent diseases so as to reduce the cost of labour and deficits in state health services with a view to reducing the incidence of early retirement due to permanent invalidity and the number of pensions resulting from industrial accidents or occupational disease (Integrated guideline No 19a). |

Amendment 15

Annex, Section 2, Title

Improve adaptability of workers and enterprises and the flexibility of labour markets | Improve adaptability of workers and enterprises and the flexibility and security of labour markets |

Amendment 16

Annex, Section 2, paragraph 1

Europe needs to improve its capacity to anticipate, trigger and absorb economic and social change. This requires employment-friendly labour costs, modern forms of work organisation and well-functioning labour markets allowing more flexibility combined with employment security to meet the needs of companies and workers. This should also contribute to preventing the emergence of segmented labour markets and reducing undeclared work. | Europe needs to improve its capacity to anticipate, trigger and absorb economic and social change. This requires employment-friendly labour costs, modern forms of work organisation, more lifelong learning and well-functioning labour markets allowing more flexibility combined with employment security, and more opportunity to combine work and private life, to meet the needs of companies and workers. This should also contribute to preventing the emergence of segmented labour markets and reducing unauthorised work. |

Amendment 17

Annex, Section 2, paragraph 2

In today's increasingly global economy with market opening and the continual introduction of new technologies, both enterprises and workers are confronted with the need, and indeed the opportunity, to adapt. While this process of structural changes is overall beneficial to growth and employment, it also brings about transformations which are disruptive to some workers and enterprises. Enterprises must become more flexible to respond to sudden changes in demand for their goods and services, adapt to new technologies and be in a position to innovate constantly in order to remain competitive. They must also respond to the increasing demand for job quality which is related to workers' personal preferences and family changes, and they will have to cope with an ageing workforce and fewer young recruits. For workers, working life is becoming more complex as working patterns become more diverse and irregular and an increasing number of transitions need to be managed successfully throughout the lifecycle. With rapidly changing economies and attendant restructuring, they must cope with new ways of working, including enhanced exploitation of Information and Communication Technologies (ICT) and changes in their working status, and be prepared for lifelong learning. Geographical mobility is also needed to access job opportunities more widely and in the EU at large. | In today's increasingly global economy with market opening and the continual introduction of new technologies, both enterprises and workers are confronted with the need, and indeed the opportunity, to adapt. While this process of structural changes is overall beneficial to growth and employment, it also brings about transformations which are disruptive to some workers and enterprises. Enterprises must be put in a position in which they can respond more flexibly to changes in demand for their goods and services, adapt to new technologies and show themselves capable of innovation in order to remain competitive. They should also be able to satisfy the increasing demand for higher job quality which is related to workers' personal preferences and family changes, and they will have to cope with an ageing workforce and fewer young recruits. For workers, working life is becoming more complex as working patterns become more diverse and they are required to carry out multiple types of work. With rapidly changing economies and attendant restructuring, they must be equipped to cope with new ways of working, including enhanced exploitation of Information and Communication Technologies (ICT) and changes in their working status, and be prepared for lifelong learning. Geographical mobility is also needed to access job opportunities more widely and in the EU at large. |

Amendment 18

Annex, Section 2, Guideline 20

Guideline. Promote flexibility combined with employment security and reduce labour market segmentation through: the adaptation of employment legislation, reviewing where necessary the level of flexibility provided by permanent and non-permanent contracts; better anticipation and positive management of change, including economic restructuring, notably changes linked to trade opening, so as to minimise their social costs and facilitate adaptation; support for transitions in occupational status, including training, self-employment, business creation and geographic mobility; the promotion and dissemination of innovative and adaptable forms of work organisation; including better health and safety and diversity of contractual and working time arrangements, with a view to improving quality and productivity at work; adaptation to new technologies in the workplace, determined action to transform undeclared work into regular employment (Integrated guideline No 20). See also integrated guideline "To promote greater coherence between macroeconomic and structural policies" (No 4). | Guideline. Promote and increase flexibility combined with employment security and reduce labour market segmentation, and promote good industrial relations on the basis of independent and representative trade unions and improved information and consultation of workers through: the adaptation and streamlining of employment legislation, reviewing where necessary the level of flexibility and security provided by permanent and non-permanent contracts; better anticipation and positive management of change, including economic restructuring, notably changes linked to trade opening, so as to minimise their social costs and facilitate adaptation to new realities; support for transitions in occupational status, including training, self-employment, business creation and geographic mobility; the promotion and dissemination of innovative and adaptable forms of work organisation; effective measures to reduce workplace accidents by means of improved prevention of workplace risks, especially through agreements at European level, and by diversity of contractual arrangements together with flexible working hours, with a view to improving quality of employment, productivity at work and the reconciliation of family life and work, adaptation to new technologies in the workplace, determined action to transform unauthorised work into regular employment and combat the grey economy (Integrated guideline No 20). See also integrated guideline "To promote greater coherence between macroeconomic and structural policies" (No 4) |

Amendment 19

Annex, Section 2, paragraph preceding Guideline 21

To maximise job creation, preserve competitiveness and contribute to the general economic framework, overall wage developments should be in line with productivity growth over the economic cycle and should reflect the labour market situation. Efforts to reduce non-wage labour costs and to review the tax wedge may also be needed to facilitate job creation, especially for low-wage employment. | To maximise job creation, preserve competitiveness and contribute to the general economic framework, overall wage developments should be in line with productivity growth over the economic cycle and should reflect the labour market situation. Efforts to reduce non-wage labour costs and to review the tax wedge are also advisable to facilitate job creation. |

Amendment 20

Annex, Section 2, Guideline 21

Guideline. Ensure employment-friendly wage and other labour cost developments by encouraging the right framework for wage-bargaining systems, while fully respecting the role of the social partners, to reflect differences in productivity and labour market trends at sectoral and regional level; and monitoring and, where appropriate, reviewing the structure and level of non-wage labour costs and their impact on employment, especially for the low-paid and those entering for the first time the labour market (Integrated guideline No 21). See also integrated guideline "To ensure that wage developments contribute to macroeconomic stability and growth" (No 5). | Guideline. Ensure employment-friendly wage and other labour cost developments by sustaining and encouraging the right framework for wage-bargaining systems, particularly collective bargaining, while fully respecting the role of the social partners, to reflect differences in productivity and labour market trends at national, sectoral and regional level, respecting the autonomy of social partners, monitoring and, where appropriate, reviewing, in collaboration with social agents, the structure and level of non-wage labour costs, especially social security contributions, supervising their impact on employment, especially for the low-skilled, young people entering the labour market for the first time, older people wishing to go on working, and people with disabilities, taking specific action to tackle the gender pay gap including more effective implementation of gender equality legislation in relation to equal pay, development of clear up-to-date statistics and follow-up to equality plans. (Integrated guideline No 21). See also integrated guideline "To ensure that wage developments contribute to macroeconomic stability and growth" (No 5). |

Amendment 21

Annex, Section 3, Guideline 22

Guideline. Expand and improve investment in human capital through: the establishment of efficient lifelong learning strategies, according to European commitments, including appropriate incentives and cost-sharing mechanisms for enterprises, public authorities and individuals, in particular to significantly reduce the number of pupils leaving school early; increased access to initial vocational, secondary and higher education, including apprenticeships and entrepreneurship training; and enhanced participation in continuous and workplace training throughout the life-cycle, especially for the low-skilled and older workers (Integrated guideline No 22). See also integrated guideline "To increase and improve investment in R & D" (No 12). | Guideline. Expand and improve investment in human capital through: the establishment of efficient lifelong learning strategies, in cooperation with the social partners, according to European commitments, including appropriate incentives and cost-sharing mechanisms for enterprises, the public sector and individuals, identification and programming of the measures needed to significantly reduce the number of pupils leaving school early; increased access to initial vocational, secondary and higher education, non-university vocational training; the promotion of entrepreneurship in all levels of education and the use of the information society and the new technologies; enhanced participation in continuous and workplace training throughout the life-cycle, especially for the low-skilled, older workers, women, especially those returning to work, and SME employees; and encouragement of exchange schemes for teachers and students between enterprises at national level and between Member States (Integrated guideline No 22). See also integrated guideline "To increase and improve investment in R & D" (No 12). |

Amendment 22

Annex, Section 3, Guideline 23

Guideline. Adapt education and training systems in response to new competence requirements through: better identification of occupational needs and key competences, and anticipation of future skill requirements; broadening the supply of education and training tools; developing frameworks to support the transparency of qualifications, their effective recognition and the validation of non-formal and informal learning; ensuring the attractiveness, openness and high quality standards of education and training systems (Integrated guideline No 23). | Guideline. Adapt education and training systems in response to new competence requirements through: better identification of occupational needs and key competences, and anticipation of future skill requirements; support for close co-operation between industry and educational and research centres in order to provide the best climate for innovation among European enterprises; broadening the supply of education and training tools; developing frameworks to support the transparency of equivalent qualifications, their effective recognition and the validation of non-formal and informal learning; ensuring the attractiveness, openness and high quality standards of education and training systems, including systems meeting the specific needs of people at a disadvantage on the labour market, particularly women, young people and older people; making special efforts to attract students and scientists from third countries (Integrated guideline No 23). |

Amendment 23

Annex, Section 3, paragraph following Guideline 23

In taking action, Member States should pay special attention to ensuring good governance of employment policies. They should establish a broad partnership for change by involving parliamentary bodies and stakeholders, including those at regional and local levels. European and national social partners should play a central role. Member States should define commitments and targets in line with the EU Guidelines and Recommendations. Good governance also requires transparency in the allocation of administrative and financial resources. In agreement with the Commission, Member States should target the resources of the Structural Funds, in particular the European Social Fund, on the implementation of the European Employment Strategy and report on the action taken. Particular attention should be paid to strengthening institutional and administrative capacity in the Member States. | In taking action, Member States should pay special attention to ensuring good governance of employment policies. They should establish a broad partnership for change by involving parliamentary bodies and all stakeholders, at European, national, regional and local levels. Member States, regional and local actors should define commitments and verifiable targets in line with the EU Guidelines and Recommendations and specific regional and local needs. Good governance also requires transparency in the allocation of administrative and financial resources. In agreement with the Commission, Member States and regions should target the resources of the Structural Funds, in particular the European Social Fund, on the implementation of the European Employment Strategy and report on the action taken. Particular attention should be paid to strengthening institutional and administrative capacity in the Member States and regions. |

[1] Not yet published in OJ.

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