EN    EN EN 
EN    EN  COMMISSION OF THE E UROPEAN COMMUNITIES 
Brussels, 2.7.2008 
SEC(2008) 2156 
  
COMMISSION STAFF WORKING DOCUMENT 
 
accompanying the  
COMMUNICATION FROM THE CO MMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
  
Renewed social agenda: 
Opportunities, access and solidarity in 21st century Europe 
  
IMPACT ASSESSMENT  
{COM(2008) 412 final} 
{SEC(2008) 2157} 
EN 2   EN TABLE OF CONTENTS 
1. Introduction ................................................................................................................ .. 3 
2. Background .................................................................................................................. 4 
2.1. Basis for EU action ...................................................................................................... 4  
2.2. The Social Agenda 2005-10......................................................................................... 6 2.3. Consultations............................................................................................................. ... 6 
2.4. Research feeding into this exercise .............................................................................. 8 3. Problem definition...................................................................................................... 10 3.1. The context: changing social  realities in Europe ....................................................... 10 
3.2. Problems arising from the new social realities in the European Union ..................... 12 
3.3. Problems of a horizontal nature ................................................................................. 18 4. Objectives.................................................................................................................. . 21 
5. Main policy options.................................................................................................... 24 5.1. Option 1: 'no change in approach – no change in policy'........................................... 24 5.2. Option 2: 'no change in approach – change in policy'................................................ 24 5.3. Option 3: 'change in approach - change in policy' ..................................................... 25 6. Analysis of impacts .................................................................................................... 25 6.1. Economic impacts ...................................................................................................... 26 6.2. Social impacts ............................................................................................................ 29 
6.3. Environmental impacts............................................................................................... 32 6.4. Political impacts ......................................................................................................... 32 
7. Comparison of options ............................................................................................... 34 8. Value added and subsidiarity ..................................................................................... 35 9. Monitoring and evaluation ......................................................................................... 38 10. Annex 1: Scoreboard on the implemen tation of the Social Agenda 2005-10............ 39 
11. Annex 2: Summary of the result s of the public consultation ..................................... 46 
12. Annex 3: Bibliography............................................................................................... 49 
EN 3   EN 1. INTRODUCTION  
Since the beginning of its mandate, this Commis sion has successfully shifted the European 
agenda to the key challenges of our times and to the expectations of citizens: growth and 
employment, energy, climate change, migra tion, innovation and competitiveness. The 
Commission’s vision was set out in its contribution " European Values in the Globalised 
World "1 to the October 2005 meetin g of Heads of State and Government. The contribution 
stressed that common European values, such as solidarity and cohesion, equal opportunities and the fight against all forms of discrimination, adequate health and safety 
at the workplace, universal acces s to education and h ealth care, quality of life and quality 
of work, and sustainable development, laid the foundations for our specific approach to 
economic and social policies. 
The Commission also recognised that European citizens had gr eater expectations of the 
State, on which they relied more than their As ian or American counter parts, and that the 
public sector played a big role, be it th rough regulation or govern ment spending. On 
average, the EU’s 27 Member States devot e 26% (2005) of GDP to spending on social 
policy, compared with 15% in the USA and 17% in Japan. There is also a strong European 
dimension to Member States’ social policies: in contrast to other regions of the world, 
European national systems are bolstered by EU -level policies and inst ruments (such as the 
stability offered by macro-economic policy, th e dynamism created by the internal market, 
and social cohesion through the St ructural Funds). On top of th is is Europe’s longstanding 
tradition of social dialogue and partnershi p between governments, industry and trade 
unions. 
In its Communication A citizens’ agenda: Deliver ing results for Europe
2, the Commission 
pointed out that the European Union needed to analyse the radica l changes under way in 
our societies and to develop sust ainable responses at all levels  if it wanted to tackle the 
challenges facing Europe’s economies and so cieties. On that basis, the Commission 
undertook a comprehensive stocktaking of Europe’s social reality3 to ascertain the changes 
under way in employment, family structure, lifestyles and traditional support structures 
and which reflect the growing pres sures of demographic changes. 
Building on the results of this wide-ranging consultation (see subsection 2.3), the crucial 
question that now needs answering is whethe r the existing approaches provide adequate 
responses to the new challe nges. The Communication on Opportunities, Access and 
Solidarity: Towards a new social vision for 21st century Europe4 (thereafter 'Social Vision 
Communication') sets out the Commission’s initial response to the new challenges 
emerging from the first results of the c onsultation on Europe’s social reality. 
                                                 
1 COM (2005) 525 final 
2 COM (2006) 211 final 
3 "Europe's social reality, A consultation document from the Bureau of European Policy Advisers" 
available at: http://ec.europa.eu/citizens_agenda/social_rea lity_stocktaking/docs/background_document_en.pdf
 
4 COM (2007) 726 final 
EN 4   EN This Communication was prepared in close co ordination with the Si ngle Market Review 
adopted by the Commission last November5. The November Communication on the new 
social vision also indicates that the Commission will prepar e a renewed social agenda for 
mid-2008 – which is the subject of this imp act assessment – to he lp deliver concrete 
results for European citizens. 
Lastly, the March 2008 European Council indicated that it looked forward ' to the 
Commission's proposal for a 'renewed Social Agenda which should play a key role in 
strengthening the social dimension of the Lisb on Strategy by taking account of Europe's 
new social and labour realities and also co vering issues such as youth, education, 
migration and demography as we ll as intercultu ral dialogue' . 
Given the essentially political  nature of this initiative, this impact assessment is 
proportionate to the purpose set. As such, it does not claim to quantify the impacts 
precisely, but confines itself to a general qualit ative analysis of the likely impacts (see 
section 6). 
This impact assessment also takes account of the comments of the Commission's Impact 
Assessment Board. In particular, the impact assessment illustrates the problem definition section (part 2) with relevant data. The text also clarifies that the problem definition builds 
on the issues identified in November 2007 Social Vision Communi cation. Furthermore, 
the objectives in section 4 and the links betw een the problem definition and the objectives 
have been clarified. Also in section 4, a ne w paragraph on the complementarity with other 
current policy objectives and processes, incl uding the European Strategy on Growth and 
Jobs, has been added. The three options (in se ction 5) have been reformulated and the 
differences between the three options have been clarifie d, starting from the baseline 
scenario. The analysis of impacts (in sect ion 6) has been modified to clarify the 
differences in terms of impact compared to the baseline scenario. Finall y, the text clarifies 
the added value of the preferred option and ma kes the links between subsidiarity and value 
added aspects. 
2. B
ACKGROUND  
2.1. Basis for EU action 
Over the last 50 years, the European Union ha s built up a considerable body of legislation 
covering various spheres of citizens' lives  and has developed a number of policy 
instruments in line with the Union’s objectives as set out in the Treaty on European Union 
(TEU). The Union's citizen-related objectives in Article 2 TEU are not confined to the 
promotion of economic and social progress,  a high level of employment, sustainable 
development, the creation of an area without internal frontiers, and economic and social 
cohesion. They also extend to the protection of the rights of the nationals of the Member 
States in an area of freedom, security and ju stice and the asserting of the Union's identity 
on the international scene. 
                                                 
5 Communication from the Commission: A Single Market for 21st century Europe (COM (2007) 724 
final of 20.11.2007) 
EN 5   EN In addition, Article 2 of the Tr eaty establishing the European  Community (TEC) explicitly 
refers to the internal mark et and an economic and moneta ry union, the promotion of the 
sustainable development of economic activitie s, a high level of employment and social 
protection, equality between men and women, sustainable and non-inflationary growth, a 
high degree of competitiveness and convergence of economic performance, a high level of 
protection and improvement of the quality of th e environment, the rais ing of the standard 
of living and quality of life, economic and social cohesion and solidarity among Member 
States. 
These objectives are reflected in the various initiatives and actions of the Community in 
many different fields, such as the internal ma rket, health education, culture, information 
society, enterprise, macro-economic policy, re search, environmental protection, trade, 
employment, social affairs and equal opportu nities. The EU’s employment and social 
policy objectives are implemented through various instruments, in particular legislation, 
the open method of coordination, financial instru ments, such as the European Social Fund, 
the European Globalisation Adjustment Fund,  the Progress programme, and the social 
dialogue. 
In the fields of employment, social affairs and equal opportunities, as in others, however, 
Community competence is subject to the principle of subsidiarity set out in Article 5 TEC, 
which limits the scope of Community intervention to measures that can, by reason of the scale or effects of the proposed actio n, be better achieved by the Community. 
Over the years, the EU has adopted a compre hensive legal framework protecting workers' 
rights, including health and safety, worker s' information and consultation, and gender 
equality. More recently, three Directives based on Article 13 were adopted to combat 
discrimination on all grounds at the workplace and on the basis of racial or ethnic origin in 
the provision of goods and services. The coor dination of social s ecurity systems also 
facilitates the free movement of workers within the EU.  
Moreover, since 1997 the European Employment  Strategy has enabled the Member States 
to set common objectives and coordinate their employment policies. Member States have 
also worked within the open method of co-ordin ation in the fields of social inclusion and 
social protection. With a budget of approxi mately €75 billion for 2007-13, the European 
Social Fund supports some 9 million citizens ev ery year, in particul ar with a view to 
improving their employability, labour market participation and soci al inclusion. Lastly, 
European social dialogue has ove r the years resulted  in the adoption of  over 300 joint texts 
by the European social partners. 
The Treaty of Lisbon, which is in  the process of ratif ication, makes significant advances in 
the social field. If ratified, the Charter of Fundamental Rights would be enforceable before 
the European Court of Justice. Second, the existing horizontal clause on gender equality 
would be bolstered by a horizontal clause  on promoting non-discrimination when EU 
policies and actions are defined and implemen ted. Third, a horizontal social clause would 
ensure that the definition and implementation of all EU policies and actions would seek, 
among other things, to promote a high level of  employment, guarantee an adequate level 
of social protection and combat social excl usion. Lastly, Protocol 14 on services of 
general interest would rec ognise the importance and speci ficity of these services. 
EN 6   EN 2.2. The Social Agenda 2005-10 
One of the starting points for the renewed soci al agenda is the social agenda for 2005-10 
adopted by the Commission in 20056. The social agenda identified three key conditions 
for success: an inter-generational approach, a pa rtnership for change and the need to seize 
the opportunities offered by globalisation. It al so presented key measures at EU level 
related to employment (pro sperity), equal opportunities and inclusion (solidarity). 
Of the social agenda’s 28 initiatives (see table in Annex 1), 24 have already been 
implemented and three have been abandoned. The last initiative (m odernisation of the 
coordination of social security schemes) is  the subject of on-goi ng negotiations between 
Council and European Parliament. This means that the Commission has now implemented all the actions planned unde r the social agenda 2005-10. 
Although they were not specifically mentione d in the 2005 social agenda Communication, 
two recent initiatives are also worth mentioning: 
– To help workers deal with the impact  of changing world trade patterns, the 
Commission proposed the establishment of a European Globalisation Adjustment Fund 
(EGF) in 2006. Following its adopti on by Parliament and the Council
7, 10 applications 
for assistance were received by the EGF in  2007, four of which were approved by the 
EU budgetary authority before the year ende d. In 2007 the EGF was used twice, each 
time for two separate cases, supporting 5 113 workers in all. 
– Following a request from the 2006 Spring Euro pean Council, the Commission adopted 
a Communication on flexicurity8 in June 2007, highlightin g the four components of 
flexicurity (flexible and reliable contractual arrangements, comprehensive lifelong learning strategies, effective active labour ma rket policies and mode rn social security 
systems). Flexicurity  seeks to combine increased fl exibility (for workers and 
companies) and new forms of security for workers during transitions (between 
education and training, when accessing or re -entering the labour market and between 
jobs). In December last year, the Europ ean Council endorsed the Common Principles 
for flexicurity, which will enable the Member  States and the social  partners to design 
and implement labour market reforms in accordance with their specific national 
situation through ‘pathways’. Furthermore,  a ‘flexicurity mission’ was set up to 
promote practical implementation of the principles in different national contexts. A report on the flexicurity mission will be pr esented to the Coun cil in December 2008. 
2.3. Consultations 
2.3.1. Social Reality Stocktaking 
When adopting A Citizen's Agenda  in May 2006,  the Commission announced its intention 
of taking stock of the reality of European society.  
                                                
 
6 COM (2005) 33 final. 
7 Regulation (EC) No 1927/2006 of the European  Parliament and of the Council of 20 December 
2006 on establishing the European Globalisation Adjustment Fund 
8 Communication from the Commission "Towards Common Principles of Flexicurity: More and 
better jobs through flexibility and security" (COM (2007) 359) 
EN 7   EN The overall aim of this ‘Social Reality Stockt aking’ was to ensure that European social 
policies reflected the main changes in Eu ropean economy and society as a result of 
globalisation, demographic tr ends and technological chan ge. A public consultation on 
Europe’s social reality was launched in February 2007. Building on the initial results of 
the consultation, a Communication ' Opportunities, access and solidarity: Towards a new 
social vision for 21st century Europe'  adopted in November 2007 sets out a range of 
possible responses to the societ al challenges at work in th e European Union and extended 
the consultation period until mid-February 2008. Building on this consultation, the Commission annnouced that it would prepare of a renewed social agenda for mid-2008. 
On the basis of approximately 150 cont ributions received by mid-March 2008, the 
Commission published a summary report9 describing the consultation process, giving 
general observations on the contributions received, and providi ng a summary of the 
positions set out in the individual contributi ons based on the seven key areas for action 
presented in the November 2007 consultation do cument (see short summary of the results 
in Annex 2). The two consultation documen ts, together with a number of other 
background documents, have been made  available on a dedicated website10. For the 
information of interested parties, the Co mmission has also placed the contributions 
received on the Social R eality Stocktaking website. 
In parallel with the public consultation, the Eu ropean Parliament, the European Economic 
and Social Committee and the Committee of the Regions provided their views on the 
future social agenda and related matters11. The Commission actively followed their work 
and that of other European and national bodies12. Lastly, the Commission took account of 
a Eurobarometer poll published in Febr uary 2007 on European social reality. 
2.3.2. Further consultations 
Apart from the public consultation on the so cial reality stocktaking, the Commission 
consulted various stakeholde rs up to early May 2008: 
– Conference of 16 April 2008 on ‘A soci al Europe fit for globalisation’ : Speakers 
stressed the positive role of European integrat ion in preparing citizens for globalisation. 
The Single Market and the euro were presente d as the basic instruments for coping with 
the new challenges of the globalised econom y. Strengthening solidarity and social 
cohesion at home and promoting minimu m standards of decent work and 
environmental protection at international level are two sides of the same coin. The EU should tackle the challenges by focusing on  education and trai ning for young people, 
solidarity with those left behi nd, social inclusion and intercu ltural dialogue as well as 
research and innovation. The need for a cros s-cutting, holistic approach was stressed.  
                                                
 
9 See http://ec.europa.eu/citizens_agenda/social_reality_stocktaking/index_en.htm# , SEC (2008) 
1896, or a short version in Annex 2 of this impact assessment report. 
10 http://ec.europa.eu/citizens_agenda/social_reality_stocktaking/contributions/contribution_en.htm  
11 European Parliament, Rapport Lynne (2007/2104(INI)); Committee of the Regions, L'avenir du 
marché unique et le bilan de la réalité soci ale européenne (Rapporteur: M. PARSONS, CdR 
339/2006, mars 2007) et Comité Economique et Soci ale Européen, Bilan concernant la réalité de la 
société européenne (Rapporteur: M. OLSSON, Avis Exploratoire CESE 94/2007 du janvier 2007). 
12 Note that the Commission’s representations suppor ted the consultation and debate on the social 
reality stocktaking in a number of Member States. 
EN 8   EN – In its Opinion of 30 April 2008, the Social Protection Committee  (SPC)  stressed that 
the renewed Social Agenda should pave the way for a holistic approach. The SPC 
shared the Commission's broad, cross-cutting approach set out in the Social Vision 
Communication of November 2007. The SPC also  called for a better mainstreaming of 
the EU’s social objectives in key EU polic y areas, in particular through the extended 
use of social impact assessments. The SPC also called for the reinforcement of the 
Open Method of Co-ordination in the social protection and social inclusion fields and 
stressed that the use of ot her instruments, such as Co mmunity programmes and social 
dialogue, should be optimised, together with  a better implementation of the existing 
legislation. The SPC stressed the diversity of  social needs and institutions across the 
EU and the principle of subsidiarity. 
– The Conference of 5 and 6 May 2008 'Respondi ng to new social realities: Developing 
an EU agenda for opportunities, access and solidarity'  provided a platform for 
stakeholders — the Member States, representatives from the European institutions, the social partners, civil society representatives, and experts — to discuss the broad policy 
lines of the renewed Social Agenda. There was widespread agreement on the the need 
for an integrated, comprehensive approach. Sp eakers underlined the specific role of the 
EU in this regard. Opportuni ties, access and solidarity we re confirmed as three basic 
principles for a holistic European social po licy agenda. Several sp eakers stressed that 
the renewed Social Agenda could not confine itself to stating pr inciples but should 
come forward with concrete proposals that  lead to tangible results for citizens
13. 
Lastly, it is worth noting that the Co mmission has conducted consultations with 
stakeholders and the general public for individua l initiatives which are expected to be part 
of the 'renewed Social Agenda' package in  accordance with its established policy and 
standards of consultation. The results of these consultations are reflected in the individual 
impact assessments accompanying these initiatives. 
2.3.3. Timing 
The review of the 2005-10 Social Agenda wa s originally planned as part of the 
Commission’s 2007 Legislative an d Work Programme. However, in order to take due 
account of the results of the Social Realit y Stocktaking, the Co mmission decided to 
postpone the review until mid-2008. 
2.4. Research feeding into this exercise 
The Commission regularly conducts assessments of the economic and social conditions in 
the European Union through studies and report s (in particular, the annual progress reports 
on the Lisbon Strategy for Growth and Jobs, the ‘Employment in Europe’ reports, the 
‘Social Situation’ reports, the joint reports on employment, and on social protection and 
inclusion, the ‘Industrial Rela tions’ reports, the annual reports on migration and 
integration, and the 'European  Economy' reports, etc.). 
In order to assess future economic and soci al challenges and buttress decision-making, the 
Commission has conducted a number of studies over the last two years on such topics as 
'Is Social Europe Fit for Globalisation?', 'EMU@10', the long-term trends in Social 
                                                 
13 http://ec.europa.eu/employment_social/emplw eb/social_agenda/ec_conference_en.html  
EN 9   EN Europe, 'Globalisation and Europe: Prospering in the New Whirled Order', 'Child Poverty 
and Well-Being in the EU', and ‘the links betw een the environmental and social pillars of 
sustainable development’. 
In addition, a number of European and interna tional organisations or  agencies (including 
the OECD, the ILO, the European Foundation for the Improvement of Living and Working Conditions, the European Training Foundation) have conducted studies that 
provided input into this impact assessment.  Lastly, Eurobarometer opinion polls, namely 
the poll conducted on the Future of Europe as  part of the Social Reality Stocktaking 
exercise and surveys on specific topics (e .g. discrimination in  the EU, European 
employment and social policy, poverty and ex clusion, the Single Market, and racism and 
xenophobia), and selected nationa l and international opinion polls, provided additional 
essential information on citizens’  perceptions and expectations. 
Annex 3 lists the studies, reports, evaluations and articles used for this impact assessment. 
EN 10   EN 3. PROBLEM DEFINITION  
3.1. The context: changing social realities in Europe 
In the November 2007 Social Vision Comm unication, the Commissi on provided a first 
overview of the social realitie s on the basis of the ongoing So cial Reality Stocktaking. It 
noted that European societies were unde rgoing fast-moving, profound changes in both the 
economic and social spheres. These changes ar e driven by powerful external forces such 
as globalisation and climat e change, as well as by internal  forces such as demographic and 
social developments. Based on the initial results of the Social Reality Stocktaking, the Commission presented an initia l analyis of the changes in society, in the economy, and in 
lifestyle and values in the Social Visi on Communication. The following section reflects 
the initial analysis set out in the Novemb er 2007 Communication and takes account of the 
results of the Social Reality Stocktaking. 
3.1.1. Changes in society 
A key source of change in soci ety is demographic shift. Life expectancy at birth, which in 
2000 was at 75.5 for men and 81.4 for women, will probably continue to increase to 82 for 
men and 87.4 years for women by 2050. This means that a growing percentage of 
Europeans enjoy longer and more active retireme nt. However, this has economic, financial 
and social implications for European societie s and families. The old-age dependency ratio 
is expected to double to 51% by 2050, which me ans that there will be two elderly citizens 
aged 65 and above for every person of working age (15 to 64 years). The working population will shrink by 48 million over the same  period. At the same time, birth rates 
are at a constant low
14, despite people's desire to have  children, and family patterns are 
changing, with a trend towards singl e parenthood and weaker family bonds. 
Society meanwhile is becoming less cohesive  and less inclusive. Social isolation, 
particularly among the elderly, is an increasi ng risk. There are grow ing inequalities in 
income and opportunity, with over 100 million people living on an inco me of less than 23 
euros a day. The incidence of child poverty is high and even rising in some Member 
States. Young people are facing difficulties in  securing housing and decent employment. 
Gender inequality has not yet been achieved, as testified by the enduring 15% gender pay 
gap.  
Finally, society is becoming more diverse, as a result of the enlargement of the EU to 27 
Member States and immmigration from outside the EU's borders. A vibrant multicultural environment has inspired innovation and creativ ity, but it has also generated new concerns 
about intercultural dialogue and tolerance. Lastly, migration is  testing the effectiveness of 
Member States' integration stra tegies, notably in major Eur opean cities and border regions. 
3.1.2. Changes in the economy 
Economic globalisation and rationalisation of  production on an international scale are 
developing apace, spurred in part by technol ogical innovations that bring lower prices for 
                                                
 
14 The rate for the EU-25 in 2006 was 1.5 children per woman, much lower than the so-called 
replacement rate of 2.1 children per woman. 
EN 11   EN goods, services and increase productivity gains.  This process is changing the shape of 
Europe's economy. 
Following the completion of the Single European  Market and recent enlargements, the EU 
is now a single market of almost 500 milli on consumers and the world’s largest trading 
entity. The EMU and the euro have ensured price stability, which is conducive to job 
creation and high and stable economic growt h. Europe's share of world exports has 
increased over the past decade, rising from 40.8% in 2000 to 41.7% in 2006. Since 1990, the EU has been the main recipient and supplie r of foreign direct investment (FDI). The 
EU’s stock of outward FDI has helped boos t the competitive position of many European 
companies while greater cross-border trade and investment have boosted growth and 
created jobs
15. 
Thirteen million jobs have been created since 2000 – 6.5 million alone in the last two 
years, and 5 million more are projected to  be created by 2009. Unemployment has fallen 
from 9 % in 2003 to 6.7% in February 2008. Th e overall employment rate in the EU has 
risen from 63.3 % in 2000 for the EU-15 to 66%  in late 2007 for the EU-27. Over the last 
two decades, for every job lost to economic ch ange Europe has created  a new one in more 
competitive sections of the economy. In 2006 al one, there were nearly 3 million new jobs 
in the EU, topping the 2.3 million created in the USA in the same year16. 
And yet, despite increasing employment ra tes overall, unemployment remains high in 
many parts of Europe17. Working life is changing at an ever-faster pace, bringing 
challenges and opportunities and demanding new skills and new adjustments from 
businesses and workers alike. This requires st rengthening actions to better anticipate and 
manage change and deal with the social  consequences of company restructuring. 
Work patterns are also changing,  with the ‘job-for-life’ career pattern giving way to 
increasingly diverse types of contracts and working conditions . In the knowledge society, 
the labour market is also more reliant on hum an capital, education a nd skills. This poses 
challenges for the quality and effectiven ess of education and training systems. 
Finally, the transition to a low-carbon econom y and the preservation and management of 
natural resources are of vital importance for safeguarding the well-being of future generations. There is the cha llenge of maximising the benef its of change by harnessing 
new opportunities for economic development a nd the creation of 'green jobs', while 
ensuring that the consequences of climate change and poor environmental quality impact 
on the weak and poor as little as possible. 
                                                
 
15 European Commission (2004), Employment in Europe, Chapters 2 and 5. 
16 Daniel S. Hamilton and Joseph P. Quinlan (2008), Globalisation and Europe: Prospering in the 
New Whirled Order. 
17 For instance in Slovakia (9 .9% in early 2008) and in Spain (9.0% in  early 2008). 
EN 12   EN 3.1.3. Changes in lifestyles and values 
European societies are experien cing a weakening of the tradit ional bonds that held society 
together, such as family and religion, and a trend towards individualis ation of values and 
atomisation of culture.  
Interest and trust in traditional forms of po litical participation are decreasing as more 
flexible forms of civic participation emer ge, aided by advances in information and 
communication technology. Globalisation has increased the expos ure of European 
societies to diversity, enrich ing social life but also pr ompting challenges related to 
integration and intercultural di alogue and raising questions as to Europe's capacity to 
assert its common values. 
Changing lifestyles are also associated with in creases in social problems, such as stress, 
obesity, insecurity and isol ation, and substance abuse. Current production and 
consumption patterns have significant environmental impacts too. Reversing these negative impacts of today’s lifestyles will mean adjusting behaviour. 
3.2. Problems arising from the new social  realities in the European Union 
The following section describes a number of problem areas deriving from the key changes 
set out in the previous section. The problem s are related "opportunu ties", "access" and 
"solidarity" which are closely inte rrelated and of equal importance. 
Creating opportunities
 means generating more and better jobs and facilitating mobility. In 
societies where each individual is regarded as being of equal worth, no barriers of any 
kind should hold people back. This means ensu ring the chances for all to develop their 
own potential while respecting Europe’s dive rsity and tackling discrimination, racism and 
xenophobia. 
Opportunities cannot be ensured without improving access  for the most disadvantaged. All 
citizens must have access to good quality educati on, health care and services that can help 
overcome inequalities and enable them to enj oy longer and healthier lives. All Europeans 
should have access to education and skills development throughout life so as to adapt to change. 
Europeans share a sense of solidarity
: between generations, betw een regions, between the 
wealthier and less wealthy Member States. So lidarity is part of how European society 
works and how Europe engages with the rest of the world. Real equality of opportunity 
depends on both access and solidarity. Solidarity also means helping disadvantaged people 
who cannot reap the benefits of an open, ra pidly changing society. It means fostering 
social inclusion and integrat ion, participation and dialogue. 
3.2.1. Young people are not getting the best start in life 
Despite the fact that young peopl e in the EU currently enjoy a wealth of opportunities, the 
Social Reality Stocktaking consultation conf irms that today's young generation are in a 
particularly fragile situation.  
EN 13   EN This is in line with the findings of a Eur obarometer poll in which around two thirds (64%) 
of respondents said they expected life to be more difficult for the next generation18. In 
particular, the individual life chances for the young are unevenly spread. Evidence shows 
that life chances are often set by the time a child reaches school, with family background playing a key role. This means that the s ituation of disavantaged children, including 
migrant children, needs to be addressed. 
In 2005, 19% of children were at risk of pove rty in the EU, against 16% for the total EU 
population
19. According to a recent OECD report, the gap between child poverty and the 
overall poverty rate had increased in a number of EU Member States. Besides, the OECD 
PISA 2003 survey shows a positive correla tion between the parents' educational 
attainment and occupational status, and the performance of the 15 year-old pupils in 
mathematics, reading and science. Als o, pupils from migrant background perform 
relatively worse than peers who were born in the country. Furthermore, the overall number 
of low-achievers in reading literacy has in creased since 2000 from  20.2% to 23.4% in 
200620. 
As a result, too many young people are not able to de velop their full pote ntial and to enter 
the job market successfully. Too many youn g people leave school without a formal 
qualification, which puts them at a disadvant age in the knowledge economy. Even if the 
percentage of 18-24 year-olds leaving sc hool with no more than lower secondary 
education decreased from 17.7% in 2000 to 15. 3% in 2006, the figure is well above the 
EU benchmark of 10% to reach by 2010. Another priority is to subs tantially increase the 
rate of young people aged 20-24 with a upper se condary education quali fication (currently 
78%), and the number of young people staying on to tertiary education. 
Youth unemployment remains a serious proble m: Even though the unemployment rate of 
young people has decreased over the recent years (18.7% in 2004, 14.6% in February 2008), it is more than twice as high as for the average working age population age (6.7% 
in February 2008)
21. Innovative approaches are needed to enhance well-being among 
young people, ease the difficulties they face in accessing the job market, housing and financing, and encourage them to participate more in society.  
Problem 1: how to give youth  the best start in life? 
3.2.2. Citizens are not yet equippe d with the skills needed fo r fulfilling careers in the 
knowledge economy 
The EU is well placed to take advantage of globalisation. But the bene fits of globalisation 
are not equally shared and globalisation create s apprehension. The EU needs to support its 
citizens to help them adapt to changing realit ies and to show solidarity with those who are 
affected negatively. 
                                                 
18 Eurostat: Special Euroba rometer 273 (2007): 'European Social Reality'. 
19 European Commission: Child Poverty and well-being in the EU. Current status and way forward', 
2008.  
20 See Joint Employment Report 2007/2008. 
21 Eurostat (2008), Euro indicators – news release 44/2008 
EN 14   EN In the age of globalisation and increased competitiveness, restructuring has become a 
widespread phenomenon affecting companies, workers and their families, and regions and 
territories. However, Europe continues to be a net creator of jobs. Thirteen million jobs 
have been created since 2000 – 6.5 million alone in the last two year s, and 5 million more 
are projected to be created by 2009. Unemploy ment has fallen from 9 % in 2003 to 8.6% 
in 2005 to 6.7% in February 2008. Annual labour  productivity growth measured as value-
added per worker accelerated to 1.2% in 2006, compared to an average of 0.4% between 
2001 and 2005.  
For the first time in about a decade, employment increases and productivity growth go 
hand in hand22. The overall employment rate in the EU has risen from 63.3 % in 2000 for 
the EU-15 to 66% in late 2007 for the EU-27. 
In today's labour markets and tomorrow's too, citizens face a range of transitions, both 
between jobs, between periods  spent in employment, on tr aining and when looking for 
work. For instance, while 23% of pensioners  and 21% of those 55 years and older have 
never changed their employer, this is only tr ue for 16 % of those below 55 years. More 
flexibility in working life means more free dom for the individual to combine periods of 
employment with periods of education and l earning and facilitates re conciliation of work 
and family life. However, not all citizens have the skills and flexibility to cope with these 
transitions.  
A key problem is the widespread lack of  skills needed to adapt to the knowledge 
economy. According to a recent report, the insufficent spread of ICT (information and 
communication technology) innovati ons in Europe is mainly responsible for the gap in 
productivity between the USA and the EU  since the mid-1990s. Between 1998 and 2003, 
the growth in the employment rates of high- skilled workers (+25.1%) in the EU-15 by far 
outnumbered that rates for workers with in termediate (+14.2%) and low (+2,2%) skills. 
What is more, the number of low-qualification jobs is fo recast to fall by 8.6 million by 
2015. 
In view of this situation, pa rticipation rates in life-long learing and education are not 
adequate: even if participation in lifel ong learning has increased from 7.1% in 2000 to 
9.6% in 2006, progress is currently too slow to make the EU reach the agreed 12.5% 
benchmark by 2010. Furthermore, too many young people leave sc hool with at best lower 
secondary education.  
In addition, labour markets so metimes lack the combination of flexibility, safeguards and 
incentives needed to allow workers and busine sses to cope with change and enjoy more 
diversified working lives. In labour markets no longer characterised by a ‘job for life’ with 
early retirement, there is also  a lack of mechanisms to ensure that workers can access 
quality employment throughout their lives, taking on family commitments and working later in life. Lastly, citizens are not yet prope rly equipped to be able  to manage mobility 
between jobs throughout their career.  
                                                
 
22 European Commission (2007): The EU economy: 2007 review. Moving Europe's productivity 
frontier. 
EN 15   EN There is a particular need to overcome obstacles to geographic mobility within the 
Union23, so that in developing their careers, more citizens are able to exploit the 
possibilities of free movement. 
Problem 2: how to equip citizens to lead fu lfilling careers in the age of globalisation? 
3.2.3. The EU has not risen up to the demographic and health challenge 
As a result of better health and working conditions, a gr owing proportion of Europeans 
now enjoy longer and healtier lives, a nd longer and more active retirement.  
Immigration remains the main element in EU demographic growth and positive net 
migration is recorded in most Member States . Eurostat conservative projection is that 
around 40 million people will emigrate to the European Union between now and 2050. As 
a result, European societies will become incr easingly diverse. The successful integration 
of third-country nationals and their child ren depends to a large degree on their 
opportunities to realis e their potential. Issues  concerning the integr ation of third-country 
natinals are addressed in detail in the Co mmission Communication adopted on 17 June 
200824. This issue is therefore not co vered by this impact assessment. 
In spite of migration from third countries, th e total population of the EU will fall slightly 
and become much older. In economic terms, th e main change will involve the size of the 
working-age population (15-64 years), whic h will decrease by 48 million between now 
and 2050. The dependency ratio is set to double and reach 51% by 2050, which means the 
EU will change from having four to only two persons of working age for each citizen aged 
65 and more25. In the EU, welfare expe nditure has risen from 2004 to 2005 by 3 to 4 GDP 
points, representing an increase of 10 % in public spending26. Welfare expenditure related 
to aging alone, is projected to rise  to 2 % of GDP by 2030 and to 4.1% by 2050. 
As a result, ensuring the sustai nability of pensions is a chal lenge which is crucial for the 
future of social protection systems. More  generally, enhancing the efficiency and 
effectiveness of welfare systems is essentia l to ensure progress towards the long-term 
financial sustainability of the European social model. 
Furthermore, as a result of the expected de crease of the working age population over the 
next 40 years, the EU faces the challenge of keeping up its competitiveness with a 
shrinking workforce. Projections show that , if current trends and policies remain 
unchanged, the average annual growth rate in GDP for the EU-25 will fall from 2.4% over 
the period 2004-2010 to only 1.2% between 2030 and 2050.  
                                                 
23 Only around 2% of working-ag e citizens from one of the 27 EU Me mber States currently live and 
work in another Member State – despite recent increases. According to Eurobarometer surveys on 
geographical and labour mobility of citizens, the two biggest obstacles to moving to another European country are lack of language skills (58%  of respondents) and finding a job (29%). But 
also legal and administrative obstacles (such as the recognition of qualifications) or the portability 
of pensions play an important role. 
24 Communication from the Commission: A common Immigration Policy for Europe: principles, 
actions and tools, COM (2008) 359 of 17 June 2008. 
25 Communication from the Commission: The demographic future of Europe – from challenge to 
opportunity, COM (2006) 571 final. 
26 Commission Report on the sustainability of public finances of 2006.  
EN 16   EN At the same time, it is fair to say that the EU  is not making use of th e full potential of its 
workforce. Many of the elderly or disabled people27 are willing and able to take up work, 
provided appropriate cond itions are met. In the same vein, Europe is not fully exploiting 
the potential for jobs and growth opene d up by the so-called 'silver economy'. 
Lastly, climate change and m odern lifestyles have brought ne w health problems in their 
wake. While EU legislation on health and safety  at work has contributed significantly to 
improving the situation of workers since the 1990s, there are still persistent problems. 
More than one third (35%) of European work ers on average — with variations within the 
EU — feel that their jobs put their health at  risk. There are new occupational hazards, such 
as musculoskeletal disorder s and work-related stress. 
Problem 3: how to live up to the de mographic and health challenge? 
3.2.4. Social exclusion persists in many parts of European societies 
Employment is often is a key determinant of pe ople's ability to participate fully in society, 
build a social network and real ise their full po tential. Yet all part of the population have 
benefitted from the overall increase in employment  rates and social exclusion is a real and 
growing phenomenon in most EU Member Stat es. According to a recent joint Commission 
/ Council report28, joblessness (i.e. unemployment an d professional inactivity) plays a 
major role to explain poverty and social ex clusion. Long-term unemployment persists: the 
figure has remained stable since the beginni ng of the decade at around 4%. Moreover, 8% 
of the working population in the EU  is estimated to live in poverty29. 
Effective, equal access to employment, lifelong  learning, social and healthcare services 
varies markedly across the EU , with a significant proportio n of the EU population facing 
severe difficulties in achieving a decen t living and finding a job. In 2004, around 100 
million Europeans earned less than the EU median income of around €8 000 per year30. 
Low incomes result in reduced consumption possi bilities and increase d financial hardship. 
In the longer term, the negativ e consequences of low income s include reduced life chances 
for children from deprived families and incr eased risks of poor health and mortality 
affecting people of lower socio-economic status. 
Moreover, the risk of experien cing poverty is not evenly spr ead across society. While the 
overall risk-of-poverty rate for the EU-27 is 16% , four high-risk groups stand out in nearly 
all Member States31: 
– people of working age, both employed and une mployed — and in the vast majority of 
cases, women — living alone with a dependent child; 
– those aged 65 and over and living alone who are no longer in paid employment — and 
again, in most cases, women; 
                                                 
27 Some 44.6 million people aged 16-64, making up 16% of the EU working-age population, consider 
they have a longstanding health problem of disability. 
28 Joint Report on Social Protection and Social Inclusion 2007, SEC (2007) 329. 
29 Estimation by Eurostat, Source: European Commission: 2007 compendium of indicators for 
monitoring the Employment Guidelines. 
30 Amounts adjusted for purchasing power (PPS) and household size. 
31 See European Commission: The so cial situation in the European Union 2007. Cohesion through 
Equal Opportunities. 
EN 17   EN – those of working age and living al one who are not in employment; 
– families with children where only one parent is in employment. 
Problem 4: how to reduce social exclusion and the number of Europeans at risk of 
poverty? 
3.2.5. Continued discrimination on gender and non-gender grounds 
Europe has made significant progress over the y ears in the field of gender equality. For 
instance, women now attain a hi gher educational level than me n in all Member States and 
account for up to 59% of university graduates. Nonetheless, marked in equalities still exist 
on the labour market, in reconciling work and pr ivate life, in social protection and social 
exclusion, in health, entrepreneurship, po litical and economic decision-making, and in 
science and technology.  
The employment rate for women in the EU  27 in 2007 was at 58.3 % (up from 53% in 
2000). This means that achieving the target of female employment rate of 60% in 2010 is 
within reach. However, the average employment  rate for men is currently well above 70%. 
The gender pay gap is on average 15 % in Eu rope, a figure which has remained steady 
since 2003. The share of women in decision-m aking positions is increasing slowly and 
unevenly. While in national parliaments, th e share of women increased from 16 % to 24 % 
between 1997 and 2007, the share of women in  the boards of the largest publicly-listed 
companies hardly changed and remains at  around 10%. The share of women among the 
presidents of the boards is currently at 3%. 
There are many reasons for women’s under-re presentation in social, economic and 
political life, including persis tent gender stereotypes and disc rimination, or segregation in 
education and on the labour market. Both wo men and men do not always have sufficient 
opportunities to strike a work-family life balanc e (for instance, through access to childcare 
facilities and flexible working arrangements),  but this affects women more: domestic and 
family responsibilities are still unequally distributed. 
The disadvantaged position of women in accessi ng the labour market has consequences in 
terms of the higher risk of exposure to poverty among women, particularly older women. 
Among people over 65 years, the risk was signi ficantly higher for women than for men in 
the EU-25 in 2005 (21% as against 16%). 
Problem 5: how to overcome the re maining gaps in gender equality? 
In 2006 a major EU-wide survey32 showed that many Europeans believed that 
discrimination was widespread, in particular  on grounds of disability (53%) and sexual 
orientation (50%). In terms of discrimination on grounds of  age (46%) and religion or 
belief (44%) the situation is perceived as only slightly better. Furthermore, a large 
majority of Europeans (79%, 77%, 69% an d 62% respectively) believe that being 
disabled, being Roma, being over 50 or bei ng of a different et hnic origin are a 
disadvantage in their society.  
                                                 
32 Special Eurobarometer 263 (2006), Discrimination in the European Union. 
EN 18   EN In January 200833 another survey revealed that di scrimination was perceived as most 
widespread when it comes to access to housing, followed by education. As to access to services, 40% of respondents fe lt that people buying insurance policies were likely to face 
discrimination because of their age, and the sa me percentage felt this applied to disabled 
persons. 
Protection provided against disc rimination outside the field of employment on grounds of 
disability, age, sexual orientation and religion or belief varies across the Member States. 
In addition, only a very few Member States  provide for remedies against multiple 
discrimination (discrimination on a combination of grounds). In addition, awareness of the 
existence of European anti-discrimination la ws is quite low among Europeans. Only 32% 
claimed to know their rights if they should fall victim to discrimination or harassment
34.  
Lastly, the EU’s disability strategy is base d on the Disability Action Plan for 2003-10, and 
more specifically on its final pha se set out in last year’s 'Commission Communication on 
the situation of disabled people in the EU: the European Action Plan 2008-09'35. 
Implementation by the Community and the Me mber States of the UN Convention on the 
Rights of Persons with Disabili ties should provide the basis fo r closer cooperation in this 
area. 
Problem 6: how to ensure th at life chances are not ha mstrung by discrimination? 
3.3. Problems of a horizontal nature 
3.3.1 The EU needs to better promote the social dimension of globalisation 
Recent ILO reports36 indicate that despite growth in the economy and jobs, many people 
in the world, and particularly women, do not  have access to appropria te jobs and working 
conditions. An estimated 487 million workers — or 16.4 percent of all workers — still do not earn enough to lift themselves and their families above the US$1 per person, per day 
poverty line. 
The EU is taking decisive acti on to shape the international ag enda so that it reflects our 
interests and values. The Social Agenda 2005- 10 emphasises the contribution of the EU to 
strengthening the social dimension of gl obalisation. Efforts towards promoting decent 
work for all in EU external and internal pol icies are part of this. Decent work is founded 
on four pillars (productive and freely chosen  employment, rights at  work including the 
core labour standards, social protection and social dialogue). 
The decent work agenda seeks to promote values and principles of action and governance 
which combine economic success an d social justice. As part of  the international efforts to 
promote decent work, the Commission proposed an  integrated strategy  with a view to 
mobilising EU internal and exte rnal policies around this purpose
37. Both the Council and 
                                                 
33 Flash Eurobarometer 232 (2008). 
34 Special Eurobarometer 263 (2006).  
35 COM (2007) 738 final. 
36 ILO, Global employment trends for women, Geneva, March 2008; ILO, Global employment trends, 
Geneva, January 2008. 
37 Commission from the Commission on Promoting decent work for all: the EU contribution to the 
implementation of the decent work agenda in the world (COM (2006) 249) of 24.05.2006). 
EN 19   EN the Parliament welcomed the Commission effo rts in this area. The Commission has to 
follow up on its commitment to report on the 2 006 Communication to review progress in 
the implementation of the EU decent work agenda. 
Furthermore, in the context of the decent work agenda, the Commission stressed the 
importance for Member States to continue th e process of ratificati on and application of 
ILO conventions.  
Since 2007 all Member States have ratified the eight ILO fundamental or core labour 
standards conventions. However, the Commis sion needs to encourage Member States, 
which have not done so, to ratify the ILO conve ntions (classified as up-to-date), including 
the four priority conventions38, the social security minimum standard convention (n° 102) 
and the recent conventions that have reviewed existing Conventions39. Failure to ratify and 
implement them by all Member States could undermine the credibility of the EU on the 
international stage40. 
Problem 7: how to encourage Member St ates to further contribute to the 
international decent work agenda ? 
3.3.2 All EU policies and instrume nts need to be mobilised to respond to the new social 
realities 
Both the consultation on the social reality and recent studies have confirmed that the 
common challenges that all EU Member States  face are of a multi-dimensional nature. In 
addition, many policies other than employment and social policies, such as environmental, 
macro-economic, internal market, educational or research policies, have a major social 
impact. The Commission has already been pursuing comprehensive approaches that 
involve different policies and instruments. The Lisbon Strate gy is a case in point; the 
recent Single Market Review and the "Clim ate Action and Renewable Energy Package"41 
also illustrate this new approach. 
In response to the new social realities wh ich are multi-faceted and complex, the question 
is to know whether there is scope for more joined-up cross-cutting action at EU level 
bringing together between all relevant policies to ensure better synergies between them 
and greater overall effec tiveness and efficiency.  
The EU has a number of tools at its disposal  to support and supplem enting Member States' 
actions, namely legislation, social dialogue , policy coordination between the Member 
States, comunication, partnership and financia l instruments. The question arises as to 
whether they should be revisited to take accoun t of the new social re alities. For example: 
                                                 
38 Convention on labour inspection (n° 81), Convention on labour inspection in agriculture (n° 129), 
Convention on employment policy (n° 164), and Convention on tripartite consultations (n° 144). 
39 Promotion framework for Occupational Health and Safety Convention (n° 187), the Private 
Employment Agencies Convention (n° 181) and the Maternity Protection Convention (n° 183). 
40 For instance, the EU has a considerable acquis  communautaire on occupational safety and health 
(OSH) and has an internationally recognised leadersh ip role in this area at global level. However, 
this leadership role is not yet reflected in th e Member States’ ratification scoreboard on OSH 
Conventions, such as the Promotional Framework for OSH Convention, 2006 (No 187), see 
COM(2007) 62 final. 
41 http://ec.europa.eu/environmen t/climat/climate_action.htm  
EN 20   EN – the open method of co-ordination in various  fields (including employment, social 
protection and social inclusion, education and youth) has successfully contributed to 
Member States' reforms. However,  various studies and evaluations42 suggest that there 
is scope for increasing its relevance and impact, for example by focusing on a smaller 
number of priorities and ma king them more relevant to the objectives of the renewed 
Lisbon Strategy, increased monitoring of  Member States' policies through new 
quantified targets at EU level, and more systematic use of Commission 
recommendations; 
– further analysis is needed of the ‘well-bein g’ goals that have emerged from the social 
reality stocktaking exercise, reflecting the emerging consensus that GDP is a measure of economic performance and not a measure th at suffices to guide policy responses to 
the complex challenges facing the EU; 
– the introduction of a new horizontal social clause in the Lisbon Treaty, if ratified, 
means that all major new EU initiati ves will undergo an even more rigorous 
examination of their potential social and em ployment consequences in the future. These 
considerations should be take n into account, in particular , in impact assessments; 
– the on-going budget review
43 would provide an opportunity for re-evaluating priorities 
and deciding where to concentrate resources in the future; 
– although the European Globalisation Adjustment Fund (EGF) has already intervened 
effectively in a number of Member States in  its first year of operation, the Fund’s full 
potential has not been harnessed. The Commission should indicate how decision-
making procedures could be streamlined to improve delivery and make suggestions as 
to how to broaden the scope of the EGF44; 
– the Commission needs to ensure that the existing body of Commun ity legislation is 
effectively implemented and enforced in line with the Communication of September 
200745. Where necessary, Community law may n eed to be updated to take account of 
emerging issues and to increase its effectiv eness. Alternatives to legislation (for 
example, social partners’ agreements, codes of conduct and corporate social responsibility) should be further explored. 
Problem 8: how to ensure a more comprehen sive policy mix and a more effective use 
of EU instruments? 
                                                 
42 See impact assessment accompanying the Communi cation from the Commission on "reinforcing 
the open method of co-ordination in social protection and social inclusion" (SEC (2008) 418) 
43 Communication from the Commission "Reforming the budget, changing Europe: a public 
consultation paper in view of the 2008/2009 budget review" (SEC (2007) 1188) of 12.09.2007) 
44 Communication from the Commission: Solidarity in the face of change: the European Globalisation 
Adjustment Fund (EGF): 2007 Review and Prospects (COM (2008) 421 final of 02.07.2007) 
45 Communication from the Commission: "A Europe of results: Applying Community law" (COM 
(2007) 502 final of 5.09.2007). 
EN 21   EN 4. OBJECTIVES  
4.1. Ultimate objective 
Improving the well-being and quality of life of  European citizens, while respecting the 
principles of subsidiarity and proportionality. 
4.2. Specific objectives 
On the basis of the problem definition set out in section 3, the following objectives should 
be pursued. 
4.2.1. Improving the life chances of young people 
Action is required to break th e vicious cycle of childhood de privation, academic under-
achievement and social exclusion of children. Problems related to high youth 
unemployment, high levels of sc hool drop-outs, and the rela tive job insecurity and wage 
inequality faced by younger people, have to be  tackled. All children need to receive an 
education that gives them a fair chance in t oday's world. They need to be encouraged to 
reach higher levels of qualification and skills than their parents achieved. New forms of intergenerational solidarity should be deve loped and the specific problems facing young 
people today, including access to education an d training, the labour market, housing and 
finance, should be addressed. 
4.2.2. Promoting new skills for new jobs, fulf illing careers and better employment 
Growth and jobs should be fost ered at EU level since a h ealthy economy is the foundation 
for prosperity and good quality employment is the best escape route out of poverty. 
Member States should modernise labour market s and anticipate cha nge and restructuring. 
Education and investment in human capital form ation in general are critical to ensuring 
labour participation and social inclusion, and to enhancing the competitiveness of the EU 
economy. This means a commitment to lifel ong learning and ongoing renewal of skills 
attuned to present and future labour mark et needs. Free movement is a source of 
opportunities for citizens, helpi ng to boost economic growth a nd competitiveness. Efforts 
should be pursued to facilitate mobility a nd remove obstacles, including for workers, 
young people and patients.  
4.2.3. Fostering longer and healthier lives 
Europe's ageing society demands a variety of  policy responses - fr om supporting research 
into how information technology can improve th e health and well-being of older people, 
to assessing what health care and pension re forms are needed to meet the needs of an 
ageing population while ensuring the sustainabil ity of public financing. Efforts should be 
pursued to ensure the financial sustainabil ity of social protecti on systems, adequate 
pensions in the future, and preserve the quality and accessibility of services. 
4.2.4. Combating poverty and social exclusion 
Efforts to promote active inclusion, including labour market integra tion, making work pay 
and life-long learning, particularly for thos e who are furthest from the labour market, 
EN 22   EN should be further strengthened. Rules should be  in place to facilitate the development of 
good quality, accessible and sust ainable social services. 
4.2.5. Taking gender equality and equal opportunities further 
Too many obstacles still hinder the particip ation of women in work and society. 
Addressing pay gaps, reviewing tax systems to improve work incentives, developing 
affordable and accessible childcare and elderc are services, promoting family-friendly 
practices in the workplace with more flexible  leave arrangements are essential priorities in 
this respect. Given that discrimination on various grounds (e.g. age,  disability, belief, 
sexual orientation, race or ethnic origin) is sti ll prevalent, action should be taken to further 
promote equal opportunities, including outside the sphere of employment.  
4.3. Horizontal objectives 
4.3.1. Shaping the international agenda to promote European values 
The EU is a key player on the world scene and also a 'shaper' of globalisation. Through 
multilateral negotiations and cooperation with international partners, the EU should further promote the social and environmental dimension of globalisation as part of the 
Decent Work Agenda. 
4.3.2. Ensuring the appropriate policy mix and increasing the effectiveness of EU 
instruments  
The EU should exploit the scope for synergie s between EU policies and seek to improve 
the efficiency and effectiveness of instrume nts available at EU level (legislation, open 
method of coordination, EU funding, social dialogue and dialogue with civil society), 
while respecting the princi ple of subsidiarity and maximising EU value added. 
4.4. Consistency with other EU policies 
The above-mentioned objectives are fully cons istent with, and in support of other EU 
policies and strategies, and in particular with the renewed Li sbon Strategy for Growth and 
Jobs, the EU Sustainable Development Strategy  and the Single Market . 
– In 2005, the European Council placed the focus of the Lisbon Strategy for Growth and 
Jobs. During the first cycle (2005-2008), the renewed strategy has helped to speed up the pace of reform, helping Member States to implement sometimes difficult but necessary changes to address the challenges  of globalisation. However, much remains 
to be done to prepare to strengthen the foundations for economic success in the medium 
to longer term. The Commission proposal for the Integrated Guidelines for Growth and 
Jobs (2008-2010)
46 underlines that Member States need  to keep pace w ith fast changing 
social realities (longer working lives, incr easingly diverse family structures, new 
patterns of mobility and diversity). Within th is framework, even higher priority should 
be given to the social dimension, flexicurity  policies, and to educ ation and skills as 
elements to modernise European markets and to ensure new opportunities for citizens in a knowledge society. 
                                                
 
46 Communication from the Commission to the European Spring Council: Integrated Guidelines for 
Growth and Jobs (2008-2010) (COM (2007) 803 final part V of 11.12.2007). 
EN 23   EN – Also in 2005, the European Council set out pr inciples to guide Europe on a sustainable 
path of development. These principles in clude the ongoing efforts to foster economic 
prosperity based on an innovative, comp etitive and eco-efficient economy, protecting 
and improving the quality of the environm ent, and promoting equity and social 
cohesion. In 2006, the European Council adop ted a renewed Sustainable Development 
Strategy consisting of seven key challenge s. The 2007 Commission Progress Report on 
the Sustainable Development Strategy47 stresses that the challenge is to work towards 
convergence of the overarching long term objective of sustainable development 
focusing on quality of life, inter-generationa l solidarity and the long-term viability of 
European societies, and the medium goal of  growth, competitiveness and jobs under the 
Lisbon Strategy. The energy and climate change agenda48 provides a good example of 
how these medium and longer term objectives have converged. 
– The Single Market is a fundamental pillar of  the European Union It has created jobs 
and stimulated growth. It has enabled pe ople to live, work, study and retire in a 
different country. As noted by the Comm ission in the November 2007 Communication 
on the Single Market49, the Single Market still has unt apped potential and needs to 
adapt to new evolving social  and environmental realities. As a result, the Commission 
has proposed new actions to take account of the social and environmental implications 
of market opening and to enable citizens and businesses to take  advantage of new 
opportunities. In doing so, the Single Market can effectively contribute to improving 
the well-being of citizens. 
                                                 
47 Commission from the Commission: Progress Report on the Sustainable Development Strategy 2007 
(COM (2007) 642 of 22.10.2007). 
48 See footnote 41. 
49 See footnote 5. 
EN 24   EN 5. MAIN POLICY OPTIONS  
Under the EC Treay, EU Memb er States bear the main responsibility for the policy 
changes needed to respond to the new social  realities and to m eet the corresponding 
objectives in section 4. This being so, as e xplained in section 2, there is a considerable 
Community "acquis" in a number of areas affecting citizens' lives. The fundamental 
question is therefore to know whether the EU should continue supporting and 
supplementing Member States' actions, and if  so how. The following subsections assess 
three possible options. 
5.1. Option 1: 'no change in approach – no change in policy' 
This option would entail no change in approa ch and no change in policy. In concrete 
terms, this would mean: 
– Implementing the existing Community acquis : the Commission would continue with 
the implementation of existing legislation, the European Structural Funds and the 
policy coordination processes in place (such as the renewed Lisbon Strategy and the 
Open Method of Coordination in the fields of social protection and social inclusion, 
and education). 
– Considering that the Community acquis already adequately responds to the new social 
realities and that there would be no need  for i) new (or a review of) European 
legislation, ii) a review of the existing inst ruments at EU level,  iii) more joined-up 
work between EU policies. 
– Completing the implementation of the Social  Agenda (2005-10) in its present form. 
5.2. Option 2: 'no change in approach – change in policy' 
Under this option, there would be no change in approach but change in policy. As in 
option 1, the Commission would keep implementing the existing Community acquis . 
However, by contrast to op tion 1, option 2 would mean: 
– Considering that the existing Community acquis does not adequately respond to the 
emerging social realities. 
– Presenting a revised Social Agenda  to take account of the new social realities. As was 
the case for the Social Agenda (2005-10), the revised Social Agenda  would be focused 
on the employment, social affairs and equa l opportunities fields. New actions in other 
policy areas (for example, education, heal th, information societ y and single market) 
would also be taken, although independently  from the revised Social Agenda. Co-
ordination between various policies would be  ensured in the cont ext of overarching 
processes, such as the Lisbon Strategy or the Sustainable Development Strategy. There 
would be no change in approach . 
– Presenting new actions to build on the Community acquis  in order to improve the 
quality of life and well-being of citizens. Th is would entail both legislative (review of 
existing legislation or new legislation) a nd non-legislation init iatives (for example 
Commission Communications to sp ur policy debate with the relevant stakeholders and 
EN 25   EN to set out new policy orientations - "polic y agenda setting"). This would also entail 
reviewing existing instruments, including the Open Method of Coordination in the 
social protection and social inclusion fields  and the European Globalisation Adjustment 
Fund. The new initiatives would be adopted at the same time as the revised Social 
Agenda or and announced for later adoption as part of it. There would be a change in 
policy . 
5.3. Option 3: 'change in approach - change in policy' 
As in options 1 and 2, the Commission would keep implementing the existing Community 
acquis . However, option 3 would differ fundamenta lly from options 1 and 2 as it would 
mean: 
– By contrast to option 1 and as in option 2, considering that the existing Community 
acquis does not adequately respond to th e emerging social realities. 
– By contrast to option 2, considering that the cross-cutting nature of the problems 
emerging from the new social realities requires the mobilisation of all relevant EU policies in a holistic way going beyond em ployment, social affairs and equal 
opportunities and extending to health, edu cation, information society, single market, 
macroeconomic policies, environment and external policies. There would be a change 
in approach . 
– Presenting a renewed Social Agenda  bringing together a ll relevant policies and 
capitalising on the so untapped potential between them based on three pillars: 
Opportunities, Access and Solidarity. 
– By contrast to option 1, which would not en tail any new actions, and over and above 
option 2, which would entail new actions only in fields of employ ment, social affairs 
and equal opportunities, presen ting a series of new actions  (both legislative and non 
legislative) in all the policy fields covered by the re newed Social Agenda. As in option 
2, there would be a review of the existing instruments at EU level but going beyond the 
sole employment, social affairs and equa l opportunities fields. The new initiatives 
would be adopted at the sa me time as the renewed Soci al Agenda or announced for 
later adoption as part of it. Th ere would be a change of policy . 
6. ANALYSIS OF IMPACTS  
As explained above, the purpose of the initiative is to set out a general policy response to 
the new social realities (‘broad  policy-defining document’). As this impact assessment 
does not cover a specific initiative, the eco nomic, social and environmental impacts 
cannot be assessed in detail. It is necessa rily a preliminary step and does not imply 
detailed quantitative data. It also does not c over migration aspects as  the latter are dealt 
with in a separate package of proposals adopted on 17 June 200850. 
                                                 
50 See footnote24. 
 
EN 26   EN 6.1. Economic impacts 
 Option 1: status quo Option 2: revised Social  Agenda Option 3: renewed Social Agenda for 
opportunties, access and solidarity 
Economic impacts 
Competitiveness and macro-
economic environment - Overall impact on competitiveness is 
likely to remain positive for the time being, however, failure to adapt Community 
policies to the ch anging social and 
economic realities may result in policies being less effective and efficient, thereby 
impacting negatively on competitiveness.  
- In the medium and long term, the overall 
effectiveness of national policies is likely to 
decrease even further as a result of reduced 
role of EU as a catalyst for change. - EU action (e.g. modernisation of Member 
States’ social protecti on systems and labour 
markets, measures to anticipate and manage 
econmic change, efforts to match skills with 
labour market needs, up-dating instruments in the social and employment fields) is 
likely to have a positive impact on 
competitiveness. 
- However, the EU and its Member States 
would forego possible gains in policy 
effectiveness and efficiency by not fully exploiting synergies between employment, 
social and equal opportunties policies with 
other policies. - A holistic approach is likely to maximise 
complementarity and synergies between EU policies and increase ov erall effectiveness 
and efficiency of EU action. Review of EU 
instruments beyond employment, social affairs and equal opportunties would 
enhance effectiveness and maximise the 
positive impact of EU action. 
- Coordinated EU action in the fields of 
education, enterprise policy, and 
employment will improve the quality and relevance of national education and training 
systems to labour market needs and 
contribute to increasing the competitiveness of the enterprises and the overall EU 
economy. 
- Promoting national strategies for 
enhancing efficiency and effectiveness of 
social spending in the Member States is likely to improve the overall macro-
economic environment. 
Completion of the Single 
Market - Risk of negative impacts in the medium 
and long-term. Even if present inititives 
continued (operation of EURES, 
coordination of social security schemes, 
etc.), obstacles to the free movement of workers and people would not be further 
reduced, thus hindering the completion of - Further EU action in the fields of 
employment, social affairs and equal opportunties would contribute to further 
removing obstacles to the mobility of 
workers and create a more effective and efficient level playing field between - A 'holistic approach' would contribute to 
removing obstacles to mobility not just of workers, but also larger sections of the 
population, i.e. young people, volunteers, 
researchers and patients. 
- A holistic approach would contribute to 
 
EN 27   EN the Single Market. 
- Mobility would be harmstrung and would 
fail to contribute sufficently to the good functioning of the European labour market. 
- Risks related to the lack of further 
harmonisation of the protection of citizens and workers (e.g. in field of health and 
labour law), including social dumping.. companies operating in EU. the harmonious development of the internal 
market ensuring respect for fundamental 
rights and common values. 
Operating costs and conduct of business - Impact on operation of businesses is likely 
to be neutral in the short run. However, in the medium and long-term, a moratorium on 
new legislation or on a review of existing 
legislation could be negative in terms of the lack of adaptation of the legal framework to 
the new realities or new risks (for example 
in the field of heath an d satefy at work) and 
in terms of increasing differences in 
legislation between Member States (likely to 
make the conduct of business at EU level more complicated, in particular for SMEs). 
- "Freezing" of the Co mmunity acquis is not 
in line with the EU Better Regulation 
agenda and the reduction of administartive 
burden.  
- Failure to further promote equal access for 
all consumers / citizens (including 
disadvantaged groups) to goods and services would make businesses forego gains from a 
level playing field for all consumers / 
citizens. 
- Companies would fail to benefit from a 
wider pool of human resources through the 
removal of remaining obstacles to mobility - EU action would i) create a level playing 
field between companies operating in the EU; ii) open up new business opportunties 
for certain companies by facilitating the 
access of all consumers; iii) offer companies a wider pool of human resources; iv) 
improve capacity to anticipate and manage 
change through better information and consultation of workers and enhanced social 
dialogue. - EU action in the field of education will 
improve quality and relevance of national education and training systems to labour 
market needs and contribute to facilitating 
the conduct of business. 
- Targeted use of legi slative instruments and 
better enforcement of existing EU 
legislation across various policy fields will improve the regulatory environment for 
companies. 
 
EN 28   EN across the EU. 
Third countries and 
international relations National approaches in relation to the decent 
work agenda would prevail. Difficulty of 
ensuring coherent approach at EU level. International leadership of the EU in the 
development of the decent work agenda 
may be jeopardised. As a consequence, overall impact on the situation in third 
countries and on the promotion of the social 
dimension of globalisation likely to be negative. Overall impact would be positive (for 
example through implementation of the EU 
Decent Work Agenda and invitation to Member States to ratify ILO conventions) 
but limited involvement of trade-related 
policies. Overall impact would be positive. EU would 
be in a better position to promote inclusion 
of social and environmental concerns in agreements between EU  and third countries 
and reinforce social / environmental 
dimension of trade-related policies.  
 
EN 29   EN 6.2. Social impacts 
 Option 1: status quo  Option 2: reviewed Soci al Agenda Option 3: ren ewed Social Agenda for 
opportunties, access and solidarity 
Social impacts 
Employment and labour 
markets - Proper functioning of national markets will 
be hampered in the medium run if existing or new obstacles to mobility of workers are 
not tackled; skills bottlenecks and shortages 
are likely to worsen. 
- Success of the overall Lisbon Strategy 
would be put at risk if Employment Strategy 
were not further developed together with macroeconomic and microeconomic pillars. 
- Pace of reform of national labour markets 
would slow down in the long as a result of decreasing ‘peer pressure’ between Member 
States and diminishing role of EU as 
catalyst for change. - Action at EU level is likely to: i) push 
reform agenda at national level; ii) promote peer pressure and mutual learning between 
Member States; iii) contribute to the overall 
growth and jobs agenda at EU level; iv) improve functioning of national labour 
markets. - In addition to option 2, the mobilisation of 
all relevant policies (including education, training, enterprise, single market, and 
information society policies) would further 
contribute to improving the employment situation and the the functioning of the 
labour markerts..  
- Impact of climate change on employment 
structure and new skills would also be 
looked at in more detail. 
- Review of existing tools beyond 
employment, social affairs and equal 
opportunties at EU level would increase 
effectiveness and efficiency of EU action in support of Member States. 
Standards and rights relating to 
job quality - Failure to review policies and instruments 
would in the medium to long term lead to 
differences in the level of protection 
between Member States. As a result, the 
overall level of protection of workers at EU level is likely to decrease in the face of 
future challenges. Where appropriate, Commission would 
propose legislation to update Community 
law to take account of case law of European 
Court of Justice and emerging issues. As a 
result, the EU would contribute to increasing the level of protection of workers 
and maintain or improve minimum 
standards applicable across the EU. EU action would also contribute to anticipating 
and managing change better (eg. 
restructuring) through enhanced information and consultation of workers, social dialogue 
and partnerships between relevant - In addition to option 2, closer coordination 
of EU action, for instance of employment 
and social policies with the field of 
education will improve more effectively the 
quality of national education and training systems and their relevance to labour market 
needs and contribute to improving job 
quality. 
 
EN 30   EN stakeholders. 
Gender equality and non-
discrimination - Differences in the level of protection in the 
medium and long term as a result of failure 
to review existing policies and legislation. 
- Commitment of the EU to fundamental 
rights and equal opportunities put at risk.  - EU-level action is likely to improve the 
level of protection of workers/citizens 
through a combination of non-legislative and legislative initiatives, including in the 
areas of reconciling work, family and 
private life, gender pay gap and non-discrimination outside the employment 
sphere. - Mobilisation of all relevant policies will 
facilitate gender mainstreaming in 
accordance with Article 2 of EC Treaty and the Lisbon Treaty whereby equality between 
men and women and non-discrimination 
should be promoted in all EU policies. 
Social inclusion and protection of specific groups - Overall effectiveness of national activities 
is likely to decrease over time, if no adaptation of policies. 
- Reduced role of EU as a catalyst for 
change in Member States. 
- Decreasing social cohesion and public 
support for EU as possible long-term results - EU-level action level would encourage 
Member States to promote active inclusion (through provision of adequate income, 
active labour market policies and access to 
quality services) and eradicate poverty, in particular of children.  
- Member States' actions are likely to be 
more effective through clearer focus on priorities, stronger links to Lisbon Strategy 
and new quantified EU targets.  
- However, action in employment and social 
fields alone is likely to have a limited 
impact as the issues at stake are multi-dimensional and require the mobilisation of 
all relevant policies. - EU-level action is likely to be most 
effective if all relevant EU policies are mobilised, including education (to ensure 
that young people acquire necessary key 
competencies), health  (to tackle health 
inequalities), information society (to ensure 
that all people have access to ICT – 
e.inclusion), energy (access of energy for disadvantaged groups) and single market 
(financial inclusion).  
- Review of existing EU-level tools would 
increase effectiveness and efficiency of EU 
action in support of Member States. 
Public health and safety - Overall effectiveness of national activities 
is likely to decrease over time, if no adaptation of policies. 
- Reduced role of EU as a catalyst for 
change in Member States.  
- failure to tackle health inequalities across 
the EU; risks in terms social cohesion and - Action in the framework of the three 
existing strands of the OMC for social inclusion and social protection (inclusion, 
pensions, health and long-term care) is 
likely to have a positive impact on overall public health and safety. 
- However, impact is likely to be limited if 
other relevant policies are not mobilised. In addition to option 2, EU-level action 
would complement and support Member States' activities. Imp act is likely to be 
positive in terms of: i) 
increasedopportunities for patients to receive the necessary health services; ii) 
increased quality of national health-care 
services; iii) reducing health inequalities; iv) longer and healthier lives (including through 
 
EN 31   EN public support for EU use of modern ICT). 
- Under the holistic approach, other EU 
policies would contribute to increasing public health and safety, for example 
education, demography policy and fight 
againt social exclusion. 
 
 
EN 32   EN 6.3. Environmental impacts 
 Option 1: status quo  Option 2: reviewed Soci al Agenda Option 3: ren ewed Social Agenda for 
opportunties, access and solidarity 
Environmental impacts 
 Difficult to assess impacts, but failure to 
update social and employment policies  to new environmental concerns may have a 
negative impact on the social impact of 
environmental policies. Definition and implementation of 
employment and social policies would have to integrate environmental protection 
requirements (cf. Article 6 of EC Treaty). In addition to option 2: Better integration of 
sustainable development considerations, in particular through development of EU-level 
indicators that go beyond GDP, and the 
promotion of green jobs. 
6.4. Political impacts 
 Option 1: status quo  Option 2: reviewed Soci al Agenda Option 3: ren ewed Social Agenda for 
opportunties, access and solidarity 
Political impacts 
Responsiveness and comprehensiveness Low: failure to respond to calls for further 
action at EU level and to respond to new 
social realities through a holistic approach.  Average: visible response to calls for action 
at EU level and new social realities; 
however failure to respond the call for more 
cross-cutting work at EU level. High: visible response to calls for further 
action and EU level and to respond to the 
call for more cross-cutting work at EU level. 
Consistency Low to average: Risk of decreasing 
consistency between policies (over time). Average: Consistency within the social, 
employment and equal opportunties areas is 
likely to be high, but consistency with other 
policies is likely to be sub-optimal. High: holistic approach is likely to 
guarantee high degree of consistency and 
positive interplay between social, economic 
and environmental dimensions. 
Effectiveness Low to average:  Effectiveness may decrease 
over time because of lack of modernsiation 
of policies. Average: effectiveness of EU action would 
depend in part on quality and intensity of 
interaction / synergies with other policies. High: holistic approach is likely to 
guarantee high level of effectiveness of EU 
responses through better complementarity and synergies between the relevant EU 
policy fields and a review of EU 
instruments. 
 
EN 33   EN Visibility Low: failure of the EU to provide visible 
responses to citizens expectations and to 
calls for further action at EU level could undermine confidence of  EU citizens in the 
European project. Average to high: visible response of the EU 
to citizens' expectations and to calls for 
further action at EU level; visibility high for stakeholders in the employment, social 
affairs and equal opportunities fields but 
limited in others. High: visible response of the EU to citizens' 
expectations and to calls for further action at 
EU level, reaching out beyond the "traditional" employment, social affairs and 
equal opportunities stakeholders. 
 
EN 34   EN 7. COMPARISON OF OPTIONS  
Under Option 1, the current Community acquis  and policies would be maintained in their 
present form, while taking account of the new social realities would be left mainly to the 
Member States. Failure to adapt EU policies to ne w social realities is likely to have a negative 
impact across the four dimensions (economic, social, environmental, and political) in the 
medium and long term. The EU would no longer play its role as a catalyst for change and 
would fail to take account of evolving issues. The degree of involvement would vary between 
the Member States. As a result, the degree of protection of European workers/citizens would 
be uneven and there would be no level playin g field between compan ies across the EU. The 
functioning of the Single Mark et would be jeopardised in the medium to long term. 
Furthermore, there would be no guarantee that national responses to the new social realities 
would have the degree of comprehensiveness and consistency required to provide holistic 
policy responses to the challenges facing the EU . From an EU-governance point of view, the 
Commission would fail to de monstrate its commitment to improving the well-being of 
European citizens, in spite of their expectations  as illustrated by the so cial reality consultation 
and in various recent Eurobarometer polls. This  could seriously undermine the legitimacy of 
the EU. 
Under Option 2, the Commission would present a revised Social Agenda limited to the 
employment, social and equal oppo rtunities fields. The analysis  of the economic, social and 
environmental dimensions has shown that the overall impact would be positive. The EU 
would review the instruments at its disposal in the fields of employment, social affairs and 
equal opportunties. The EU would push forward reforms of  national employment and social 
systems, increase the level of protection of workers and ensure a level playing field for 
companies operating in the Single Market. Alt hough the EU would be s een to address the 
concerns of EU citizens, the overall impact of EU  action is likely to be limited, because of its 
lack of comprehensiveness (failure to mobilise other policies in response to the new social 
realities) and responsiven ess (failure to take account of all citizens’ expectati ons). Lastly, the 
consistency of EU action is  likely to be sub-optimal. 
Under Option 3, the EU would mobilise all its relevant policies to respond to the new social 
realities. As a result, EU responses to th e challenges emerging from the consultation on 
Europe's social reality are likely to be more e ffective. This will enable synergies between EU 
policies. For example, the development of school education will have an impact not only on the acquisition of key competencies but also on the future career prospects of young people, 
the availability of highly skilled workers for co mpanies, the reconciliation of work and family 
life (as more parents will be able to take up employment), and the social inclusion of disadvantaged groups. Equally, action to improve the health of the EU  population will have a 
postive impact not only on public health but also on the social inclusion of disavantaged 
groups and on employment and productivity. This  option would also be in line with the 
Lisbon Treaty, which calls for the mainstreami ng of employment and social objectives in all 
EU policies
51. 
                                                 
51 See new Article 5a of the Treaty on the Functioning of the European Union: ‘In defining and 
implementing its policies and activities, the Union sh all take into account requirements linked to the 
promotion of a high level of employment, the guarantee of adequate social protection, the fight against 
social exclusion, and a high level of education, training and protection of human health.’ 
 
EN 35   EN Furthermore, EU action would be highly  comprehensive (it would go beyond the 
employment, social affairs and equal opportunities fields), respons ive and consistent. It would 
not create a new process at EU level. Rath er, it would support th e existing proocesses, 
including the renewed Lisbon Strategy for "G rowth and Jobs". It would support Member 
States' activities and respect the principle of  subsidiarity and proportionality. Lastly, the 
analysis of impacts clearly shows that a review of exis ting tools would maximise the 
effectiveness and efficiency of EU action.  
In conclusion, Option 3 (‘A renewed Social Agenda for opportunities, access and solidarity’) 
is the preferred option. 
8. VALUE ADDED AND SUBSIDIARITY  
Member States have the main responsibility fo r the policy changes need ed to respond to the 
new social realities. However, the consultation on Europe's soci al reality has confirmed that 
the confidence of citizens in the European pr oject depends on credible  social policies at 
European level. As explained in section 2.1, the role of the EU is anchored upon a solid 
foundation. 
EU action should remain conditional upon proven a dded value, in line w ith the subsidiarity 
and proportionality requirements. But this does not preclude a more pro-active role at EU 
level to catalyse change and to steer, suppor t and accompany necessary reforms. As part of 
the renewed Social Agenda, the Commission intends to present concrete new initiatives either 
at the same time as the Communication or to be adopted at a later date. Where appropriate, the 
Commission will carry out impact assessments of  the specific initiatives in accordance with 
the Commission’s impact assessment guidelines52. The individual impact assessments will 
deal with the aspects related to subsidia rity and value added in more detail.  
Some of the planned initiatives are listed below to illustrate the contribution and value added 
of the EU in five main areas. 
- Setting policy frameworks for action : there is a shared willi ngness to work towards common 
goals at EU level. This is why in a number of policy domains such as employment, social 
inclusion, social protection, education, youth, cu lture and health (and more recently in the 
field of immigration and integration), the EU ha s established or is about to establish common 
objectives, reporting mechanisms and indicato rs as a means of monitoring progress and 
comparing best practice. The experience of th e European Employment Strategy launched ten 
years ago - and now an essential pillar of the Lisbon Strategy - shows that such mechanisms 
can make a difference, by shedding new light on priorities that were not prominent at EU 
level earlier on - such as "f lexicurity", quality and produc tivity of work, childcare, 
immigration, undeclared work and minority issues  - as well as on innova tive ways to address 
them. 
These processes have now been operating for se veral years. They have been successful in 
allowing the Member States and the Commissi on to define common goals; but less so in 
stimulating the necessary degree of ambition and policy efforts to reach these common goals. 
                                                 
52 SEC (2005) 791. 
 
EN 36   EN As is being done for the review  of the Lisbon Strategy, the EU  should consider how to make 
these voluntary processes more dynamic and mo re focused on implementation while at the 
same time taking into account the diversity of institutions and traditions. 
Examples of initiatives : 
- Communication from the Commission "A renewed commitm ent to social Europe: Reinforcing the Open Method 
of Coordination for Social Protection and Social Inclusion" (July 2008). 
- Commission Recommendation on active inclusion (October 2008). 
- Communication from the Commission on "Developing the Open Method of Coordi nation on Y outh (2008). 
- Communication from the Commission on "Updating the strategic framework for European co-operation in 
education and training (December 2008). 
- Upholding Europe's values a nd ensuring a level-playing field : There is a solid EU legal 
framework in areas such as gender equality, anti-discrimination, free movement of workers 
and working and employment conditions. Europ ean social partners have been active in 
negotiating agreements or defining joint strategies  in a number of key areas. In the light of 
changing social realities, the in creased diversity of the EU a nd the new Treaty of Lisbon, the 
legal framework should to be reviewed and ad apted, where appropriate, to ensure that it 
reaches agreed goals effectively. EU legislati on will remain essential to uphold the rights of 
citizens as set out in the Treaties, including by ensuring compatibility between national rules. 
Lastly, the EU has set out its views on how Europe can succeed in an era of globalisation by 
shaping global regulation and examining best ways to promote a convergence of standards globally.  
Examples of initiatives : 
- Proposal for a Directive on the establishment of a European Works Council or a procedure in Community-
scale undertakings and Community-scale groups of undertakings for the purposes of informing and consulting 
employees (recast) (July 2008). 
- Proposal for a Council Directive implementing the princi ple of equal treatment between persons irrespective of 
religion or belief, disability, age or sexual orientation (July 2008). 
- Proposal for a Directive on the application of patients' rights in cross-border healthcare (July 2008). 
- Legislative proposals with a view to improving the reconciliation of private and professional life by improving 
parental leave arrangements, introducing news forms of leave (paternity, adoption and filial leave), and 
strengthening protection for pregnant women (September 2008). 
- Commission Staff Working Document "Report on the EU  contribution to promoting decent work for all in the 
world" (July 2008). 
- Sharing experien ce and good practice : For all the EU's diversity, Member States are often 
faced with common societal trends and practi cal difficulties, offering scope for mutual 
learning. Progress towards common  EU goals should be monitored, evaluated and compared. 
Best practice needs to be rolled out: EU mechan isms for the exchange of experiences, joint 
evaluations and peer reviews s hould be reinvigorated, making sure that they are part of the 
mainstream national and European policy de bate. Ensuring the grea ter involvement of 
national and regional parliaments, local and regi onal authorities, social  partners and NGOs is 
essential in this respect. 
 
EN 37   EN Examples of initiatives : 
- Commission Communication "Imp roving competences for the 21st Century: An Agenda for European 
Cooperation on Schools" (July 2008). 
- Commission Staff working paper "Efficiency and effectiveness of social spending" (July 2008). 
- Commission Report on the Barcelona targets concerning the availability of child-care facilities in the Member 
States (September 2008).  
- Supporting action at local, regional and national level : Through its cohesi on policy, the EU 
has played a major role in reducing differences  in prosperity and living standards across the 
EU. The funds have provided and continue to provide a financial le ver for less advanced 
regions and Member States to catch up. In recent years, these instruments have become more closely associated with the 'growth and jobs' pol icy priorities of the EU . For instance, over the 
period 2007-2013, € 75 billion are be ing invested by the European Social Fund (ESF) to equip 
the workforce with new skills and companies w ith innovative work organisations. Moreover, 
the European Globalisation Fund has helped rein tegrate into the labour market workers made 
redundant due to changing global trade patterns . This Fund is an important symbol of 
solidarity for those affected by the consequen ces of globalisation. Lastly, the Commission has 
launched a debate on the future of the European budget after 2013. It will be important to feed 
the findings of the social reality consultation into that debate. 
Example of initiatives : 
- Commission Communication "Solidarity in the face of change: The European Globalisation Adjustment Fund 
(EGF) in 2007 - Review and Prospects" (July 2008). 
- Raising awareness and building a strong knowledge base : the EU has an important role to 
play in flagging key issues, stimulating di scussion and creating political momentum for 
tackling common challenges in Eu rope. Initiatives such as the European Years for Equal 
Opportunities for All (2007), fo r Intercultural Dial ogue (2008) and for Combating Poverty 
and Social Exclusion (2010) faci litate this type of discus sion. Awareness and analysis of 
social issues has often been hampered by th e lack of complete and up-to-date EU-wide 
statistics and indicators. Yet, decision makers need these facts in order to better inform public 
debate and assess the social  impact of initiatives. 
Examples of initiatives : 
- Commission Staff Working Document "First biennial report on the situation of social services of general 
interest in the EU" (July 2008). 
- Commission Communication "Non-discrimination and equal opportunities: A renewed commitment" (July 
2008). 
- Commission Staff Working Document "Restructuring and Employment: the contribution of the European 
Union" (July 2008). 
- Green Paper on "Migration and Mobility: challenges for EU education systems (July 2008). 
- Commission Communication on "Meeting the needs of an ageing population (October 2008). 
- Commission Communication on health inequalities (2009).  
 
EN 38   EN 9. MONITORING AND EVALUATION  
First, as explained above, the renewed Soci al Agenda for opportunities, access and solidarity 
does not create a separate process. It suppor ts and is closely linked with on–going processes 
such as the Lisbon Strategy for Growth and Jobs, the renewed Sustainable Development 
Strategy, the Single Market, and the processes of open method of coordination in the fields of 
social protection and social inclusion, of education and of  youth. Separate monitoring, 
reporting and evaluation mechanisms exist for all these processes. This will continue to be the 
case without adding an extra reporting mechas im for the implementation of the renewed 
Social Agenda. 
Second, the renewed Social Agenda is back ed up by a number of legislative and non-
legislative initiatives, often wi th their own impact assessments and monitoring and evaluation 
mechanisms. As a result, there will no additional process to monitor and evaluate the individual initiatives, although cohere nce between them will be ensured.  
Third, the Commission will present a report on  the implementation of the renewed Social 
Agenda in 2010. This report s hould include an evaluation of the implementation of the new 
horizontal social clause in the Lisbon Treaty (i f ratified). On that ba sis, the Commission will 
present a Communication on the review of th e renewed Social Agen da for opportunities, 
access and solidarity in 2010. 
 
EN 39   EN 10. ANNEX 1: SCOREBOARD ON THE IMPLEMENTATION OF THE SOCIAL AGENDA (2005-10) 
INITIATIVES TRANSVERSALES 
 
INITIATIVE OBJET ETAT  
(achevé, 
reporté, en 
cours) INTITULE REFERENCE 
1 Un livre vert sur les relations 
intergénérationnelles Analyse des mutations 
démographiques des populations 
européennes et des relations 
entre les générations  Achevé Livre vert "Face aux changements 
démographiques: une nouvelle solidarité entre 
générations" COM (2005) 94 final 
2 Forum sur l'Agenda social Evaluation de la mise en œuvre 
de l'Agenda social Achevé  Forum a eu lieu les 5 
et 6 mai 2008. 
1. Promotion du travail décent comme objectif mondial à tous 
les niveaux 1. Achevé Communication de la Commission "Promouvoir 
un travail décent pour tous. La contribution de la 
Commission à la mise en œuvre de la l'agenda du 
travail décent dans le monde"  COM (2006) 249 
final 3 Promotion du tr avail décent  
 
2. Création d'un groupe 
interservices pour la promotion 
de la dimension externe de 
l’emploi, de la politique sociale et du travail décent 2. Achevé Groupe interservices (DGs: SG, RELEX, AIDCO, 
DEV, ELARG, TRADE, ECFIN, EAC, JLC, 
ENU, SANCO, RTD, ESTAT, BEPA) 
« Dimension externe de l’emploi, de la politique sociale et du travail décent».  
4 Un partenariat intergénérationnel: une 
contribution à l'initiative européenne 
en faveur de la jeunesse.  
 S'inscrit dans le cadre du 
partenariat intergénérationnel. 
Intégrer la dimension "jeunesse" dans les stratégies de l'emploi et 
de l'inclusion sociale Achevé Communication de la Commission sur les 
politiques européenne de la jeunesse "Répondre 
aux préoccupations des jeunes Européens – mise en œuvre du Pacte européen pour la jeunesse et 
promotion de la citoyenneté active" COM (2005) 206 
final 
 
EN 40   EN INITIATIVES RELATIVES A L'AXE EMPLOI 
 
INITIATIVE OBJET ETAT  
(achevé, annulé, 
en cours) INTITULE REFERENCE 
1 Un cycle rénové de la Stratégie 
Européenne pour l'Emploi  Réexamen à mi-parcours de la 
stratégie de Lisbonne  Achevé  Communication de la Commission au Conseil 
européen de printemps " Travaillons ensemble 
pour la croissance et empl oi. Un nouvel élan pour 
la Stratégie de Lisbonne" COM(2005) 24 
2 Une action de sensibilisation des 
acteurs du Fond Social Européen en 
2006 et une campagne de communication auprès des 
parlements et d'autres acteurs 
concernés en 2006/2007 Améliorer la gouvernance de la 
SEE Achevé   
1. Proposer une approche active 
face aux restructurations afin de 
mieux anticiper, susciter et gérer 
les mutations économiques. 1. Achevé 
 Communication de la Commission 
"Restructuration et emploi. Anticiper et 
accompagner les restructurations pour développer 
l'emploi: le rôle de l'Union européenne" COM (2005) 120 
final 
 
2. Forum européen sur les 
restructurations Achevé  Mise en place du Forum sur les "Restructurations" 
et organisation régulière de réunions rassemblant l'ensemble des parties prenantes. Annoncé dans: COM 
(2005) 120 final 3 Nouvelle stratégie dans le domaine de 
la gestion des restructurations 
3. 2ème phase de consultation des 
partenaires sociaux : questions 
des restructurations et de la révision de la directive relative 
aux comités d'entreprise 
européens (94/45/CE) Achevé Communication de la Commission 
"Restructuration et emploi. Anticiper et 
accompagner les restructurations pour développer l'emploi: le rôle de l'Union européenne" COM (2005) 120 
final 
 
4 Livre vert sur l'évolution du droit de 
travail Rôle du droit du travail face à 
l'évolution de nouveaux modèles 
d'organisation du travail  Achevé Livre Vert: Moderniser le droit du travail pour 
relever les défis du XXIe siècle  
Communication de la Commission : Issue de la COM (2006) 708 
final du 22.11.2006 
COM (2007) 627 
 
EN 41   EN consultation publique sur le Livre vert de la 
Commission "Moderniser le droit du travail pour 
relever les défis du XXIe siècle" final du 24.10.2007 
 
5 Une initiative communautaire en 
matière de protection des données à caractère personnel Protection des données à 
caractère personnel des travailleurs  Annulé   
6 Mise à jour de la directive 
2001/23/CE sur les transferts 
d'entreprises  Annulé   
7 Codification des diverses dispositions 
relatifs à l'information et consultation 
des travailleurs Mise à jour de la directive 
98/59/CE (licenciements 
collectifs) en matière 
d'information et consultation des travailleurs Annulé   
8 Nouvelle stratégie dans le domaine de 
la santé et sécurité au travail pour la 
période 2007-2012 Prévention face aux nouveaux 
risques et sauvegarde de niveaux 
minimum de protection sur le lieu de travail Achevé Communication de la Commission « Améliorer la 
qualité et la productivité au travail: stratégie 
communautaire 2007-2012 pour la santé et la sécurité au travail » COM (2007) 062 
final du 21.02.2007 
9 Initiative visant le développement et 
la transparence de la responsabilité 
sociale des entreprises  Concourir à l'efficacité et à la 
crédibilité des pratiques relevant 
de la responsabilité sociale des 
entreprises Achevé Communication "Mise en œuvre du partenariat 
pour la croissance et l'emploi: faire de l'Europe un 
pôle d'excellence en matière de responsabilité 
sociale des entreprises" COM (2006) 136 
final 
10 Propositions visant à lever les 
obstacles à la mobilité de la main-d'œuvre et relatives aux régimes de 
retraite professionnelle Réalisation d'un véritable 
marché européen du travail Achevé Proposition de directive relative à l'amélioration de 
la portabilité des droits à pension complémentaire COM(2005) 507 final 
11 Une nouvelle proposition relative à la 
négociation collective transnationale Mettre en place un outil 
permettant de formaliser la conduite et les résultats de la 
négociation collective 
transnationale  Commission Staff Working Document "The role 
of transnational compan y agreements in the 
context of increasing international integration" SEC (2008) 2155 du 
02.07.2008 
 
EN 42   EN 12 Organisation de l'Année européenne 
(2006) de la mobilité des travailleurs Vers un marché européen de 
l'emploi Achevé   
13 Constitution d'un groupe de haut 
niveau (représentants des Etas Membres) Évaluation de l'impact de 
l'élargissement sur la mobilité et du fonctionnement des périodes 
transitoires Achevé Communication de la Commission "Rapport sur le 
fonctionnement des dispositions transitoires visées au traité d'adhésion de 2003 (période du 1
er mai 
2004 au 30 avril 2006)"  COM (2006) 48 final 
14 Modernisation et simplification de la 
coordination des régimes de sécurité sociale  Modifications des règlements:  
1. CEE n°1408/71, 
2. CE n° 883/2004, 
3. CEE n°574/72 En cours Proposition de règlement d'application du 
règlement 883/2004
. D'autres initiatives prévues 
dans le Programme législatif et de travail de la 
Commission pour 2007 concernant l'extension du 
Règlement 883/04 aux ressortissants des pays tiers et les annexes manquantes. COM(2006)16 
 
EN 43   EN INITIATIVES RELATIVES A L'AXE SOLIDARITE 
 
INITIATIVE OBJET ETAT  
(achevé, 
reporté, en 
cours) INTITULE REFERENCE 
1 Appliquer le processus de la MOC 
aux domaines de la santé et des soins de longue durée à partir de 2006.  
Rationnaliser et simplifier la mise en 
œuvre de la MOC Ouverture de la MOC à de 
nouveaux domaines. Rationalisation et simplification 
consistera en l'établissement 
d'une liste unique d'objectifs communs aux 3 volets - 
inclusion, retraites, santé - 
incluant 
2 objectifs horizontaux: l'égalité 
des chances et l'accès au marché 
du travail Achevé Communication de la Commission "Travailler 
ensemble, travailler mieux :Un nouveau cadre pour la coordination ouverte des 
politiques de protection sociale et d’inclusion 
sociale dans l’Union européenne" COM (2005) 706 
final 
2 Une initiative communautaire sur les 
dispositifs des ressources minimales 
et l'intégration des exclus du marché 
du travail Continuation du débat sur les 
dispositifs nationaux de revenu 
minimum. Consultation sur les 
raisons d'une efficacité 
insuffisante des dispositifs 
existants Achevé Communication de la Commission "Consultation 
sur une action à mener au niveau communautaire 
pour promouvoir l'inclusion active des personnes les 
plus éloignées du marché du travail". 
Communication de la Commission « Moderniser la 
protection sociale pour renfor cer la justice sociale et 
la cohésion économique: promouvoir l'inclusion 
active des personnes les plus éloignées du marché 
du travail » COM (2006) 44 
final 
 
COM (2007) 620 
final du 17.10. 2007 
3 Organiser l'Année européenne (2010) 
de la lutte contre la pauvreté et 
l'exclusion sociale Mesurer le progrès obtenu au 
cours de la décennie pour 
souligner la vulnérabilité 
particulière des populations les plus sensibles Achevé  Proposition de DÉCISION DU PARLEMENT 
EUROPÉEN ET DU CONSEIL relative à l’Année 
européenne de lutte contre la pauvreté et l’exclusion 
sociale (2010) COM (2007) 797 
final du 12.12.2007 
 
EN 44   EN 4 Une communication suite au Livre 
Vert "Egalité et non-discrimination 
dans l'UE élargie de 2004" Cadre politique pour les 
nouvelles mesures en matière 
d'égalité et non discrimination. Question des minorités 
(notamment les Roms) Achevé Communication de la Commission européenne sur 
une stratégie-cadre visant à promouvoir la non-
discrimination et l’égalité des chances pour tous, en réponse aux commentaires et  aux réactions au Livre 
vert de mai 2004 COM (2005) 224 
final 
5 Organiser l'Année européenne (2007) 
de l'égalité des chances Souligner l'importance de la 
question de l'égalité des chances. Rendre plus visibles les résultats 
déjà atteint et illustrer les 
avantages de la diversité pour l'économie et la société 
européenne Achevé  Décision relative à l’Année européenne de l’égalité 
des chances pour tous (2007) - Vers une société juste  JO n° L 146 du 
31/05/2006 
6 Une communication sur la question 
de l'égalité entre les femmes et les hommes L'expiration de la stratégie-cadre 
2001-2005. Propositions de nouvelles actions Achevé Communication de la Commission "Croissance, 
prospérité et solidarité dans une société égalitaire et démocratique: une feuille de route pour l'égalité 
entre les femmes et les hommes 2006-2010 COM (2006) 92 
final 
7 Création d'un Institut européen pour 
l'égalité entre hommes et femmes Collecte d'informations et 
échange des bonnes pratiques. Rôle d'assistanat auprès de la 
Commission et des Etats 
Membres dans la mise en œuvre 
des objectifs communautaires 
pour la promotion de l'égalité hommes femmes Achevé Règlement (CE) Nª 1922/2006 du Parlement 
européen et du Conseil du 20 décembre 2006 
portant création d'un Institut européen pour l'égalité 
entre les hommes et les femmes JO L 403 du 
30.12.2006 
Nouvelles éditions du plan d'action 
en faveur de l'égalité des chances 
pour les personnes handicapées 1. L'action en matière de l'égalité 
des chances pour les personnes 
handicapées Achevé  
 Communication de la Commission "La situation des 
personnes handicapées dans l’Union européenne 
élargie : plan d’action européen 2006-2007" COM (2005) 604 
final 8 
Rapport sur la situation des personnes 
handicapées  2. A présenter tous les deux ans, 
lors la Journée européenne des 
personnes handicapées Achevé  Communication de la Commission : La situation des 
personnes handicapées dans l’Union européenne: 
plan d’action européen 2008-2009 COM (2007) 738 
final du 26.11.2007 
 
EN 45   EN 9 Une communication sur les services 
sociaux d'intérêt général (SSIG) en 
2005 Clarifier le cadre du 
fonctionnement et de la 
modernisation des SSIG Achevé Communication de la Commission "Mettre en 
œuvre le programme communautaire de Lisbonne: 
Les services sociaux d'intérêt général dans l'Union européenne" 
Communication de la Commission "Les services 
d'intérêt général, y compris les services sociaux d'intérêt général: un nouvel engagement européen COM (2006) 177 
final 
 COM (2007) 725 
final du 20.11.2007 
 
10 Décision (fondé sur art. 86, par. 3 
TCE) et un cadre communautaire 
relatifs au financement des services 
d'intérêt économique général (SIEG) 
 Clarifier dans quelles conditions 
les aides d'Etat octroyées au 
SIEG sont compatibles avec les 
règles communautaires Achevé Décision de la Commission du 28 novembre 2005 
concernant l'application des dispositions de l'article 
86, paragraphe 2, du traité CE aux aides d'État sous 
forme de compensations de service public octroyées à certaines entreprises chargées de la gestion de 
services d'intérêt économique général C(2005) 2673 
 
EN 46   EN 11. ANNEX 2: SUMMARY OF THE RESULTS OF THE PUBLIC CONSULTATION  
Social reality stocktaking 
Summary of results of the public consultation 
General Observations 
A satisfactory outcome of the public consultation 
The fairly long consultation period (from February 2007 until February 2008) produced a 
satisfactory result in terms of  volume, scope and depth of c ontributions. Some 150 mostly 
comprehensive contributions were received from all across the EU and from a wide range of 
sources such as public authorities, a national parliament committee, social partners, NGOs, 
various interest groups, universiti es and research institutions, re ligious groups and churches as 
well as individual citizens. This result is compar able to the outcome of other European-level 
consultation exercises. 
The responses received from public authori ties indicate that the consultation received 
significant political attention. As intended by the European Co mmission, the consultation was 
seen as a first step in the process of formul ating a new social policy based on a new social 
vision. Contributions were received from Bulg aria, Czech Republic, Germany, Estonia, Spain, 
France, Italy, Malta, Austria, Poland, Finland, Sweden and the United Kingdom. A number of 
contributions were also received fr om regional and local governments.  
Apart from individual responses received from social partner or ganisations at national level, 
most of the major social partner groupings  at European level, such as ETUC, 
BUSINESSEUROPE and the Conféderation Eur opéenne des Cadres, sent comprehensive 
contributions reflecting their interest in havi ng a say in defining the new social agenda. 
Further contributions came from  NGOs with a more general scope of activity in the social 
field such as CARITAS Europe, Care for Europe  and the Social Platform, as well as from 
NGOs with a more specific area of activity dealing with poverty, children, youth, health, 
disability, family issues, etc. As for religious  groups, contributions were received from both 
the Catholic and the Protestant Church at Eur opean level as well as from various other bodies 
at national level. 26 contributi ons were received directly fr om individual citizens in ten 
different Member States.  
Observations concerning approach and coverage of the consultation documents 
Comments regarding the approach Most of the contributions endorse the descrip tion of the social trends that have shaped 
European societies in recent times as set out in the consultation docum ents: globalisation and 
the shift towards a knowledge society as well as demographic trends are recurring topics that 
keep reappearing throughout the whole set of responses. Against this background, most of the 
contributions across all categories of contributor s appear to be based on the firm belief that 
the confidence of citizens in the European pr oject one way or anothe r depends greatly on 
credible social policies at European level.  
 
EN 47   EN In this context, a number of contributors firm ly believe that Europe still has the strongest 
welfare states and public services in the world, with universal democracy and with the social 
well-being and the fundamental ri ghts of its people at the centr e of its political, social and 
economic life. Nevertheless, there also appears to be widespread concern that globalisation 
might be used as a pretext to pursue economic growth at all costs, causing large-scale de-
localisations as well as a race to the bottom in terms of employment standards.  
Against this multifaceted background, most of the contributors directly or indirectly point to 
the need for a new impulse in terms of social pol icy at European level. Especially in view of 
the challenges emanating from globalisation, European ageing populations and changing work 
patterns, these contributors consider a f undamental re-assessment of social policies 
indispensable. In this context,  most contributions appear to indicate that the key lies in 
striking the right balance betw een social policies on the one hand and the drive for economic 
growth and competitiveness on the other.  
Having regard to the wider politic al process in the field of econo mic and social policies, some 
contributors point out that th e Lisbon Strategy remains the appropriate platform for the 
formulation and implementation of social policie s. In this context, other contributors argue 
that the current focus of the Lisbon Strate gy on growth and jobs is  much too narrow and 
recommend adding social guidelines to the ex isting set of integrated guidelines. Other 
contributors, particularly from Member States  as well as from employers' federations, argue 
instead that the current set of procedures in th e field of social policie s has generally worked 
well and that no new processes or procedures ar e required. In this context, both sides of the 
social partners on European level underline th e importance of the social dialogue which, at 
times, could even replace legisla tion by the European Commission.  
Some remarks on the coverage 
A large majority of contributors of all categ ories directly or indi rectly express strong 
appreciation of the coverage of the consultation documents. Qu ite a lot of contributions, for 
instance, confirm the strong lin k between Europe's future social reality and further 
development of the Union's Si ngle Market. Other contributors  underline the importance of a 
stable macroeconomic framework promoting growt h, investment and fiscal sustainability. In 
this context, some contributions even ca ll for supportive macroeconomic policies as a 
necessary pre-condition for ensuring the well-being of  European citizens. Only a very few 
contributors specifically refer to areas such as, for instance, pensions as well as disabled, 
housing and the situation of the homeless which they would have  liked to be addressed in 
more detail in the consultation documents.  
In terms of process, one contribution underlin es the appropriateness of the open method of 
coordination (OMC) as a suitable means to advan ce reform in the area of social policies. A 
number of other contributions (including from Member States), however, emphasise the need 
to further improve the OMC. A number of cont ributions suggest that the forthcoming social 
agenda should also launch a pr ocess of reassessment of the cu rrent social policy instruments 
in the light of globalisation and other major ch allenges. Finally, a numb er of contributions, 
largely from the NGO sector, stress the need for appropriate funding of social policies. 
Some specific results on the seven key areas for action proposed 
In an effort to present a pragmatic basis for th e further discussion, the pos itions put forward in 
the individual contributions have been grouped according to the seven categories sketched out 
 
EN 48   EN in the second consultation document (youth, fulf illing careers, longer and healthier lives, 
gender equality, etc.). Among the particularly  noteworthy points were the following: 
– Investing in youth : early intervention is seen as key in  addressing youth issues of whatever 
kind so as to avoid the possible emergence of problems of long duration already at an early stage. 
– Investing in fulfilling careers
: concept of flexicurity is seen by many contributions as 
central for a new social vision. 
– Investing in longer and healthier lives : health is seen as a fact or influencing virtually all 
domains of the social reality of individuals. On the other hand, strong suggestions to take 
into consideration the role of the elderly as  an economic factor recognising more strongly 
resources and potential of ageing societies.  
– Investing in active inclus ion and non-discrimination : the role of social services as an 
instrument of a policy of cohesion and participa tion is seen as crucial. Such services are 
seen as possible bridges into so ciety facilitating integration a nd participation. Further, quite 
a strong call for a change of perspective in th e field of social polic ies in Europe putting 
families as the constitutive units of society into the centre of the political discussion 
(thereby extending the current somewhat narrow focus on childcare).  
 
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