No C 230/26 Official  Journal  of the European  Communities 10. 9. 81 
Opinion  on the social  developments  in the Community  in 1980 
The text  referred  to the Committee  has not yet been  published  in the Official  Journal  of the 
European  Communities. 
A. LEGAL  BASIS  FOR  THE  OPINION 
On 21 May  1981  the Commission  referred  the abovementioned  document  to the Economic  and 
Social  Committee  in accordance  with  Article  198  of the Treaty  establishing  the European 
Economic  Community. 
B. OPINION  OF THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  prepared  its opinion  on the above  matter  at its 189th 
plenary  session  held  in Brussels  on 1,2  and  3 July  1981. 
The full  text  of the opinion  is as follows: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE, 
Having  regard  to the Treaty  establishing  the European 
Economic  Community,  and  in particular  Article  198 
thereof, 
Having  regard  to the request  made  by the Commission  of 
the European  Communities  on 21 May  1981  for  an 
opinion  on the social  developments  in the Community  in 
1980, 
Having  regard  to the decision  taken  by the Committee's 
Bureau  on 27 January  1981,  in anticipation  of the above 
request  and  in accordance  with  Article  22 of the Rules  of 
Procedure,  instructing  the Section  for Social  Questions  to 
prepare  an opinion  and  a report  on the matter, 
Having  regard  to the opinion  issued  by the Section  for 
Social  Questions  on 11 June  1981, 
Having  regard  to the report  submitted  by the rapporteur, 
Mr Burnel, 
Having  regard  to the  discussions  at its 189th  plenary 
session,  held  on 1,2  and  3 July  1981  (meeting  of 2 July 
1981), 
HAS  ADOPTED  THE  FOLLOWING  OPINION: 
by 84 votes  to 0, with  38 abstentions: 
I. INTRODUCTION 
1. Consequences  of the  links  between  the  economic 
sphere  and  the social  sphere 
1.1. In  several  previous  opinions  the Committee  has 
laid particular  stress  on the links  between  the economic sphere  and  the social  sphere.  Reiteration  of these  links 
takes  on a very  special  relevance  at a time  when  the 
aggravating  effects  of the recession  on the social  situation 
are manifesting  themselves  more  clearly  in numerous 
phenomena  that  are the direct  result  of the deterioration 
in the economic  and  the social  situations. 
In view  of this  repeatedly  stated  need  for  an overall 
approach  to, and an overall  analysis  of, the economic  and 
social  situations,  the  Committee  proposes  that  the 
possibility  be examined  of improving  the  practice 
followed  so far of drawing  up separate  opinions  and 
reports  on the economic  and  the social  situations. 
1.2. There  has been  a disquieting  deterioration  in the 
social  situation  in the Community  as regards  both  general 
economic  conditions  and  employment.  The  structural 
nature  of the crisis  has been  recognized  by the heads  of 
State  as well  as by the various  Community  institutions 
and the two  sides  of industry.  This  consensus  should  have 
found  expression  in coherent  decisions  forming  genuine 
commitments.  Such  an approach  would  open  up new 
perspectives  that  would  help  to solve  the problems  posed 
by the crisis. 
The analysis  given  in the report  on social  developments 
brings  out the very  grave  nature  of the situation.  This 
analysis  should  lead  to the  adoption  of overall, 
Community  measures  framed  after  extensive 
consultation  with  all  the  socio-economic  interest 
groups. 
1.3. The  structural  origin  of the crisis,  and  the need 
for a drastic  overhaul  of the economic  and social  policies 
pursued  so far by the political  and  monetary  authorities 
are highlighted  by the differing  stages  of development  in 
the Member  States,  their  varying  ability  to react  and their 
views  on the  best  way  to overcome  the  crisis.  The 
10. 9. 81 Official  Journal  of the European  Communities No C 230/27 
Committee  has  noted  that  the  report  on  social 
developments  reveals  the inadequacy  of a social  policy 
which  is incapable  not  only  of responding  to the 
symptoms  - but  above  all of tackling  the root  causes  -
of a crisis  which  has  considerably  slowed  social 
progress. 
2. The  economic  context 
The Committee  would  refer  readers  to the comments  in 
the opinion  on the economic  situation. 
The Committee  would,  however,  stress  the following 
points: 
2.1. The  economic  and  social  consequences  of 
inflation  are even  more  serious  when  countries,  sectors, 
firms  and individuals  with  meagre  financial  resources  are 
hit. Inflation  increases  already  existing  inequalities  and 
disparities.  The  situation  and  the trend  vary  from  one 
country  to another.  Such  variations  will persist  as a result 
of specific  national  conditions  and  difficulties.  This 
underlines  the  importance  of,  and  the  need  for, 
Community  solidarity  in terms  of policy  and resources.  A 
particular  situation  in a given  Member  State  cannot  be a 
matter  of indifference  to the other  Member  States. 
2.2. Business  performance  is stagnating  or, in many 
cases,  even  deteriorating,  and this  has repercussions  on 
self-financing  capacity  and  credit-worthiness  and 
consequently  on investments  and employment. 
2.3. Purchasing  power  is rising  only  very  slightly  or, in 
some  cases,  is at a standstill  or even  declining,  and this is 
slowing  down  consumption  and  steering  it towards  the 
lowest-priced  immediate  necessities. 
2.4. The  statistics  provide  overall  information  very 
useful  for an appraisal  of the major  trends,  but they  must 
not conceal  situations  that  diverge  from  the average. 
In a period  of crisis  the differences  among  categories 
(social  and occupational  categories,  categories  of activity, 
regional  categories,  etc.)  are more  marked.  Just  as weak 
organism  are more  vulnerable  to disease,  so a state  of 
material,  social  or cultural  poverty  gives  rise to difficulties 
with cumulative  consequences. 
2.5. While  short-term  measures  are necessary,  they 
cannot  provide  a lasting  solution  for any of the problems. 
The obvious  consequences  of the crisis  must  of course  be 
rapidly  dealt  with,  but it is essential  to tackle  the root 
causes,  which  are structural  and not merely  of a cyclical 
nature.  Hence  the need  to pursue  policies  that  are really 
overall  and  based  on very  wide  solidarity. In the very  grave  economic  crisis  that is common  to all the 
Member  States  Community  solidarity  (political, 
economic  and social  solidarity)  is absolutely  vital. 
When  all is said  and done,  the future  of the Community 
depends  on the willingness  of its Member  States  to show 
now their  political  cohesion  and  their  solidarity  and  to 
translate  this  cohesion  and  solidarity  into  coordinated 
policies  and measures. 
Exclusively  corporatist  or nationalist  measures  are no 
longer  adequate  to deal  with  the problems  and  should 
therefore  be a thing  of the  past.  No  country  can 
reasonably  hope  to ward  off the effects  of the crisis  by 
drawing  on its national  potential  alone.  The  only 
solutions  now  are Community  ones. 
2.6. The  responsibility  of all  the  Community 
authorities  is involved  here. 
The Committee  greatly  regrets  that  the  Community 
decision-making  bodies  have  so often  been  remiss  in not 
devoting  sufficient  continuous  attention  to the social 
dimension  of Community  policies. 
It is therefore  vital  that  the Community  decision-making 
bodies  take  vigorous  social  initiatives  without  delay, 
particularly  in the employment  sphere. 
2.7. Growth  is not an end in itself.  It makes  sense  only 
in relation  to human  and  social  goals. 
But it is liable  to be a long  time  before  the high  growth 
rates  of the past  are reached  again. 
Since  it is not possible  to renounce  social  goals,  we must 
turn to a new  strategy  of combined  economic  and social 
development,  whether  it is a question  of work  or 
consumption.  Greater  preference  could,  for example,  be 
given  to collective  facilities  (e.g.  public  transport  as 
opposed  to private  transport).  We shall  have  to envisage  a 
different  kind  of growth  which  attaches  more  importance 
to the qualitative  aspects. 
2.8. Despite  the  difficulties  they  are  facing,  the 
Member  States  are a rich  bloc  compared  with  countries 
where  extreme  poverty  reigns. 
No developed  country  can  remain  insensitive  to the 
consequences  of under  development.  Considering  alf that 
it represents  in terms  of human  and  social  capacity  for 
solidarity,  the Community  should  step  up its efforts  to 
help the developing  countries,  while  respecting  their 
identity  and their  freedom.  At the same  time  it should  pay 
more  attention  to the  social  dimension  of the  new 
international  division  of labour. 
No C 230/28 Official  Journal  of the European  Communities 10. 9. 81 
Excessive  preoccupation  with  national  interests  has  a 
disastrous  influence  on Community  cohesion.  Any 
Community  reaction  involving  a turning  inwards  would 
be at least  as serious  a mistake.  The  Community  spirit 
cannot  but lead  to an opening  up beyond  the territorial 
confines  of the Ten.  Europe  must  assert  itself  as such  and 
make  its voice  heard  particularly  in the debate  on the new 
international  economic  order. 
II. EMPLOYMENT 2. The  effects  of unemployment 
2.1. The  Committee  has  always  regarded  access  to 
work  as a basic  human  right 
Anyone  who  is deprived  of a basic  right  is made  to feel 
inferior  or even  guilty.  The  unemployed  person  takes  no 
part in working  life.  He must  be supported  by the State 
and is often  an outsider,  an outcast.  Or this,  at least,  is 
how he is liable  to interpret  his situation  if he gives  way  to 
despair. 
1. The  serious  deterioration  in the  employment 
situation 
1.1. The  Committee  has selected  employment  as the 
central  theme  of its opinion  on the social  situation.  It 
decided  to do so because  of the extreme  seriousness  of 
unemployment  and  its effects  on those  out of work  and 
their  families. 
The effects  of unemployment  are not confined  to those 
people  directly  hit,  however.  They  involve  the whole 
community.  Very  few  people  can be certain  that  they  will 
not, one  day,  find  themselves  without  work. 
1.2. On  31 December  1980,  the  Community  had 
almost  eight  million  totally  unemployed  - a figure  which 
takes  no account  of those  on short-time  working. 
Between  December  1979  and December  1980  the number 
of unemployed  rose  by 29 %. 
At present  (April  1981),  41 • 8 % of the unemployed  are 
women  and  40%  are  under  25. 
On a yearly  average,  the number  of unemployed  could 
rise by between  a quarter  and  a third  in 1981  compared 
with  1980. 
These  are the harsh  facts. 
1.3. The  Commission  has  noted  that  employment, 
industrial  structures  and  the social  services  will  continue 
to be affected  for a long-time  by the recession.  Closer  and 
closer  links  should  therefore  be established  between 
financial  aid for firms  and restructuring,  conversion  and 
industrial  development  policies  on the one  hand  and  the 
employment  objectives  on the other.  To achieve  this  it 
will be necessary  to have  a preliminary  consultation 
procedure  on all industrial  policy  guidelines  in the sectors 
concerned.  Only  in this  way  will  it be possible  to initiate 
- on  a democratic  basis  and  with  the  genuine 
participation  of the  economic  and  social  groups  - a 
concrete  debate  on the more  general  aspects  of economic 
policy  and,  for example,  on the general  direction  of tax 
policy,  prices  policy,  monetary  policy  and  credit  policy, 
as well  as on  promotion  of investment  and  the 
management  of social  security  systems. 2.2. In  addition  to these  consequences  for  the 
individual,  the family  also  suffers  when  unemployment  is 
prolonged. 
The household's  financial  situation  deteriorates. 
Marriages  may  be broken  up. The  education  and training 
of the children  may  be interfered  with. 
Cases  of 'multiple  unemployment'  (in which  several 
members  of the same  family  are affected,  e.g. parents  and 
grownup  children),  are  particularly  tragic  and  their 
numbers  are growing. 
2.3. At  a time  when  the principle  of equal  rights  for 
men and  women  is being  asserted,  unemployment  in the 
case of a woman  - whether  she has chosen,  for example, 
to combine  her family  responsibilities  with  having  a job, 
or whether  she has been  forced  to do so - demonstrates 
how unjust  and  poorly  adapted  a society  largely 
organized  by men  for men  is. Although  she may  have  the 
same  training  and  the  same  abilities,  a woman  is not 
necessarily  regarded  as equal  to a man. 
2.4. Unemployment  is more  serious  still  when  it 
affects  young  people.  It erodes  their  enthusiasm  and 
destroys  their  hopes. 
Unemployment  can  drive  young  people  to all kinds  of 
anti-social  behaviour:  violence,  drug  abuse,  alcoholism, 
theft,  etc. 
The young  person  who  has been  refused  employment  on 
the grounds  that  he has no experience  sees  this rejection  as 
a form  of prejudice  against  youth. 
2.5. At  a time  when  the  keenness  of economic 
competition  and  the scale  of the needs  to be met  and  the 
problems  to be dealt  with  - and  far  beyond  the 
Community's  geographical  confines  - call  for all the 
enthusiasm  and  all the ability  we can  muster,  we are 
depriving  ourselves  of the  assistance  of more  than  8 
million  men  and  women  who  are crying  out for work. 
2.6. Social  policy  and  social  institutions  are financed 
mainly  from  two  sources  - from  contributions 
calculated  on the basis  of wages  and other  incomes  on the 
10. 9. 81 Official  Journal  of the European  Communities No C 230/29 
one hand,  and from  taxes  on income,  consumption  and 
the profits  of firms  on the other. 
By reducing  the volume  of wages  paid,  unemployment 
tends  to reduce  the resources  of social  institutions  and 
States. 
Yet while  financial  resources  are standing  still,  falling  or 
rising  only  slightly,  needs  are increasing  more  rapidly. 
It may  not be possible  to increase  the social  insurance 
contribution  rates  or the tax assessment  basis  without 
further  reducing  disposable  income,  curbing 
consumption  and  limiting  company  investment. The debate  centres  on the place  of the individual  in 
economic  and social  life,  the rights  guaranteed  to all and 
the degree  of independence  and initiative  the individual 
has. All this has to be in harmony  with  the obligation  to 
ensure  the balance  necessary  for the development  of 
individual  and  collective  life,  while  new  constraints  are 
imposed  on  States,  undertakings,  individuals  and 
families. 
3.6. Yet  unemployment  must  never  be represented  as 
inevitable,  or as one  of the  normal  features  of all 
economic  life from  now  on which  can simply  be included 
in the calculation  along  with  other  data  with  a view  to 
securing  the  necessary  funds  for  unemployment 
benefit. 
3. Personal  and  political  attitudes  towards 
unemployment 
3.1. The  urgent  nature  of the employment  problem 
means  that  an active  manpower  policy  should  be 
implemented  by eliminating  the compartmentalization  of 
the labour  market,  by an overall  approach  to the 
problems  in that area  and by better  coordination  of all the 
instruments  and financial  resources  available.  It will  be 
necessary  to abandon  the static  conception  of the labour 
market  as a simple  reflection  of the facts  of supply  and 
demand. 
3.2. It  will also  be necessary  to take  action  on all those 
phenomena  that  have  an influence  on qualitative  and 
quantitative  changes  in employment.  Qualitative  and 
quantitative  management  of supply  should  as far as 
possible  be based  on  an  estimate  of manpower 
requirements  and the adoption  of guidelines  for basic  and 
advanced  vocational  training.  Vocational  training  should 
become  a system  of continuing  training  within  the 
framework  of an active  manpower  policy  and no longer 
be isolated  from  overall  economic  and social  policy. 
3.3. The  Committee  would  point  out that  the need  for 
labour  mobility  is linked  not only  with  development  and 
structural  and  technological  change  but also  with  the 
modification  of the  apparatus  of production  and 
distribution. 
3.4. In  the political  sphere,  the approach  and the will 
are often  just  as important  as the  nature  of the 
measures. 
3.5. In  addition  to the immediate  situations  which 
must  be dealt  with  quickly,  the problem  of employment 
raises  permanent  and  fundamental  questions  closely 
related  to the way  in which  one sees  the purpose  of the 
economy  and  social  policy. 3.7. The  fight  against  unemployment  is primarily  -
because  work  is a basic  human  right  - the  organization 
of economic  life in such  a way  that everyone  is able  to find 
a job which  will provide  him with  the means  he needs  to 
live. 
It is neither  desirable  on a human  level  nor sensible  on 
financial  grounds  to allow  an unlimited  increase  in social 
assistance. 
3.8. There  is no easy  answer  to the  problem  of 
unemployment.  Simplistic  solutions  or very  specific 
measures  cannot  provide  the  answer,  otherwise  the 
problem  would  be such  a minor  one  that  it would  no 
longer  be with  us. 
The solution  lies mainly  in implementing  a new  overall 
economic  and social  strategy. 
3.9. To  combat  unemployment  is to adopt  a political 
stance  and demonstrate  through  action  the desire  to show 
solidarity. 
Solidarity  cannot  be decreed  by a unilateral  decision, 
whoever  might  make  it. It can only  be the result  of a 
consenus  demonstrating  the will  to achieve  a common 
objective  with  the cooperation  of all. 
In this  context,  and  without  overestimating  the 
importance  of the  problem,  we  must  note  that 
moonlighting,  because  of its illegal  nature,  represents  a 
serious  disruption  of economic  and social  life,  especially 
as it is increasing.  It is contrary  to the interests  of firms 
(loss  of turnover),  the State  (loss  of tax revenue),  the 
social  institutions  (loss  of social  insurance  contributions), 
and the  unemployed  (loss  of a potential  job). 
Moonlighting  will  not disappear  merely  as a result  of 
moral  pressure  on those  practising  it and those  making 
use of it, however.  One  should  therefore  look  into 
concrete  measures  which  might  help  reduce  the scale  of 
moonlighting:  upgrading  of manual  labour,  aid  for 
crafts,  tax incentives,  etc. 
No C 230/30 Official  Journal  of the European  Communities 10. 9. 81 
3.10.  The  effectiveness  of the incomes  policies  being 
pursued  by the Member  States  and the impact  of social 
insurance  contributions  on employment  should  be 
studied. 
All the Member  States  are attempting  to reduce  the gap 
between  high  and  low  incomes.  They  are drawing  up 
policies  aimed  at reducing  social  inequalities. 
The main  instruments  at their  disposal  are income  tax and 
social  insurance  contributions.  The  differences  between 
fiscal  and social  levies  from  country  to country  are well 
known.  Both  structures  and rates  diverge.  From  the point 
of view  of social  justice  and the impact  on employment, 
the emphasis  on one  or the other  type  of levy  is not 
without  significance. 
While  it is easy  to establish  wages,  other  forms  of income 
are less easily  identified.  An incomes  policy  must  not be 
concerned  solely  with  wages;  it must  cover  all forms  of 
income  and the income  of everyone. 
The financing  of the  social  institutions,  and  social 
security  in particular,  differs  in form  from  country  to 
country  according  to whether  it is based  mainly  on 
taxation  or on social  insurance  contributions. 
The employer's  share  of social  insurance  contributions 
assessed  on the basis  of wages  constitutes  an element  in 
the price  of goods  and  services.  If a firm  is unable  to 
recover  its costs  in full in its selling  prices,  it compromises 
its trading  results  and  jeopardizes  its operations  and 
hence  its employment  capacity.  If, to cover  its costs,  it 
increases  its selling  prices  by too much,  it runs  the risk of a 
build-up  of out-of-date  stocks.  Its level  of activity  and 
hence  employment  will  suffer. 
This  kind  of dilemma  cannot  be settled  to the detriment  of 
the financial  situation  of the social  institutions,  whose 
activities  are essential. 
3.11.  As  the  Commission  has  noted,  the  present 
stagnation  of economic  activity  is not  due  to the 
saturation  of demand  but to the difficulty  of redirecting 
capital,  human  resources  and  productive  potential 
towards  latent  demand  within  the  Community  and 
outside  it. 
There  are important  needs  connected  with  new  forms  of 
energy  and energy  saving.  Meeting  these  needs  will in the 
long term  improve  the competitiveness  of undertakings 
by helping  them  to cut costs.  It will also  raise  the standard 
of living  of individuals,,  and reduce  the dependence  of 
countries  with  few national  energy  resources  and a weak 
currency. There  are  also  needs  in the  areas  of information, 
automation,  the use of robots  and  certain  services.  It 
would  be paradoxical  to have  to resort  to products  from 
outside  the Community  in the field  of automation  and 
robots,  for example,  when  the introduction  of these 
technologies  - which  are no doubt  sometimes  necessary 
- could  have  a harmful  effect  on employment  in the 
Community. 
There  is scope  for the extensive  development  of social  and 
cultural  activities  directly  connected  with  the quality  of 
life, since  there  are still needs  to be met.  Of course,  this 
raises  the question  of finance  for activities  of this  kind 
(investment  and  operation),  but funds  could  be found 
from  the savings  made  on other  budget  headings.  For 
example,  the various  domiciliary  care  and  home-help 
services  help  to keep  down  hospitalization  costs  which 
place  a heavy  burden  on the  community  and  the 
patient. 
Too many  problems  persist  because  of a lack  of 
imagination.  We are still  basing  our action  on the old 
ideas,  whereas  the situation  is undergoing  rapid  and 
fundamental  changes  which  call for a complete  review  of 
attitudes,  methods  and resources. 
Merely  as an example,  one might  suggest  that,  wherever 
possible,  the sums  spent  on unemployment  benefit  be 
reallocated  to pay  for jobs  which  meet  a real  social 
need. 
3.12.  The  encouragement  of flexibility,  mobility  and 
initiative  depends  largely  on the quality  of the theoretical 
and practical  instruction  provided  by schools  and 
maintained  by continuing  training. 
Instead  of training  men  and women  for narrowly  defined 
tasks,  it is necessary  to produce  adaptable  men  and 
women  capable  of taking  an active  part  in progress 
instead  of being  victims  of it. 
Alternation  between  work  and  training  and  continuing 
training  should  be encouraged,  firstly  (in the case  of the 
former)  to familiarize  the student  with  industry,  and 
secondly  (in the case  of the latter),  to provide  workers 
with a guarantee  that  they  will  be able  to maintain  and 
improve  their  skills. 
In the course  of their  lifetime,  parents  - and  particularly 
mothers  - will  wish  to devote  themselves  completely  for 
a given  period  to bringing  up and  educating  their 
children.  Family  policy  should  make  possible  such  a 
choice,  which  must  not  under  any  circumstances  be 
irreversible.  The  parent  must  afterwards  be able  to 
resume  his or her place  in working  life.  Reintegration  will 
only really  be possible  if the person  concerned  has been 
able to benefit  from  continuing  training. 
10. 9. 81 Official  Journal  of the European  Communities No C 230/31 
In this  connection,  the  Committee  would  repeat  its 
comments  on the need  to give  the European  Social  Fund  a 
more  active  role  in employment  policy  and to provide  it 
with financial  resources  more  in keeping  with  the 
requirements.  It should  be remembered  in this  context 
that the Committee  will  shortly  be giving  its opinion 
(before  31 December  1982)  on the possible  reform  of the 
Social  Fund. 
The fact  that  girls  and  boys  have  access  to the same 
educational  courses  and  the same  jobs,  combined  with 
changes  in attitudes  which  have  eliminated  the dichotomy 
- for  a long  time  absolute  - between  a career  and 
parental  responsibilities,  is leading  to the appearance  of 
new needs  and new  demands  for jobs.  Some  occupations 
are seeing  a great  influx  of women:  this is frequently  the 
case with  teaching.  It is to be hoped,  however,  that  we 
shall  not witness  a distortion  of the rules  of equality  which 
would  systematically  assign  women  to the  lowest 
positions  in all the occupational  hierarchies. 
Studies  and negotiations  leading  to greater  flexibility  of 
working  arrangements  and opening  up various  types  of 
work  (full  time,  part  time,  etc.)  are greatly  to be desired. 
Every  effort  should,  however,  be made  to protect 
workers'  rights  whatever  the form  of work. 
Changes  in the structure  of work  have  made  necessary  a 
parallel  development  of the resources  of social  life.  The 
time saved  as a result  of reduced  working  hours  should 
not be time  wasted  from  a human  and  social  point  of 
view.  One  of the  major  problems  already  facing 
developed  societies  is that  of the allocation  of time.  The 
Committee  should  take  the initiative  in this field  as this is 
a genuinely  social  problem  which  merits  broad-based 
consideration. 
Whenever  there  are  plans  in the  technical  and 
technological  sphere  which  might  influence  employment 
(reduction  in the number  of jobs,  introduction  of other 
types  of job,  changes  in working  conditions,  etc.),  there 
should  be an investigation  (carried  out at the same  time 
and not  afterwards)  in  conjunction  with  the 
socio-economic  interest  groups,  into  the social  effects  of 
the changes  to be introduced. 
The Community  could  translate  into  action  its desire  to 
aid the developing  countries  by making  available  to them 
the services  of workers  who  would  help  through  their 
enthusiasm  and  their  skills.  This  would  open  up 
employment  opportunities  for Community  countries. 
Insufficient  attention  is paid  at present  to training  those 
who could  hold  these  positions.  The  Member  States 
should  be encouraged  on this  matter. 
The reduction  in and  the reorganization  of the annual 
volume  of work  could,  in some  cases,  have  a beneficial effect  on the absorption  of unemployment,  without  being 
limited  to this single  aim.  The  Committee  welcomes  the 
fact that  consideration  of these  questions  is soon  to 
recommence  at Community  level  and hopes  that its work 
will lead  to the adoption  of measures  which  will take  into 
account  the interests  of the various  parties  concerned,  and 
be of positive  benefit  in combating  unemployment. 
The Committee  would  also  emphasize  the need  to look 
closely  at the interrelationship  between  the reduction  in 
hours  of work  and the use of productive  equipment.  If it is 
to be credible,  the proposal  must  of course  restrict  the 
systematic  use of overtime  and increase  leisure  time. 
In redistributing  the volume  of work  available  so as to 
help young  people  (whose  situation  should  receive  special 
attention)  consideration  should  still  be given  to the 
position  of older  workers.  It is therefore  recommended 
that attention  be paid  to preparation  for retirement  and 
more  generally  to the policies  and measures  concerning 
old people. 
Anyone  wishing  to start  a business  - especially  if it 
involves  young  people  and  sectors  of activity  in which 
jobs might  be created  - should  receive  more  financial 
and technical  assistance. 
Job-creation  policies  should  take  account  of all kinds  of 
business,  including  cooperatives,  which  have  shown  their 
job-creation  capacity  in certain  spheres  and  in certain 
countries. 
3.13.  As  regards  the pattern  of public  expenditure  on 
employment,  the Committee  considers  that  the constant 
increase  in unemployment  and hence  in the sums  spent  on 
unemployment  benefits  should  be a stimulus  for making  a 
comparative  study  of the cost  of unemployment  benefits 
and the cost  of productive  jobs  designed  to meet  social 
needs  that  have  not been  covered. 
It is not enough  to note  that  some  regions  are worse 
affected  or more  vulnerable  than  others,  if one does  not 
display  solidarity  with  them  as a matter  of priority. 
The same  is true  of the most  vulnerable  social  groups 
(young  people,  women,  poorly  qualified  workers,  the 
disabled,  etc.). 
The need  to provide  financial  support  for the unemployed 
and their  families  should  not  lead  us to forget  the 
importance  of the moral  support  which  is their  due. 
In the provision  of assistance,  respect  should  always  be 
shown  for the person  for whom  the aid is intended  so as 
not to increase  his feelings  of weakness  and inferiority. 
No C 230/32 Official  Journal  of the European  Communities 10. 9. 81 
This is why  great  importance  must  be attached  to 
vocational  training  for the unemployed  so that  they 
continue  to have  confidence  in themselves  and in society; 
they need  to be able  to nourish  hopes  of reintegrating 
themselves  into  working  life through  their  own  efforts. 
3.14.  In  a period  of crisis  the need  for information  is 
even more  imperative. 
A lack  of information  can lead  to speculation.  It can give 
birth  to unfounded  hopes  or fears  and  result  in 
conflict. 
The unemployed  need  information  e.g. about  their  rights 
and about  the labour  market,  to help  them  in their  search 
for work. 
The reintegration  of the unemployed  is the responsibility 
of the public  authorities.  The  Member  States  must  be 
urged  to provide  the resources  to meet  the increased 
demands  made  on their  services. 
Job advertisements  placed  in the press  and  recruitment 
through  specialized  agencies  are generally  subject  to rules 
which  protect  the job applicant.  We must  insist  that  this 
requirement  be  fulfilled  and  that  there  be  no 
discrimination  (sex,  age,  etc.)  which  is not genuinely 
based  on the specifications  for the post  to be filled. 
3.15.  But  clearly  the most  effective  way  of achieving 
full employment  is to maintain  and  expand  long-term 
industrial  activity. 
Measures  designed  to encourage  firms  which  create  jobs 
must  take  into  account  the recruitment  potential  of small 
and medium-sized  companies  and  craft  industries. 
Certain  arrangements  which  work  for large  companies 
but may  not necessarily  apply  on a more  general  scale  will 
therefore  have  to be  adapted  to the  scale  and 
administrative  resources  of smaller  firms. 
3.16.  The  decline  in the working  population  engaged 
in agriculture  must  not be regarded  as inevitable.  Every 
measure  taken  to maintain  the  agricultural  working 
population  at a reasonable  level  is part  of the struggle 
against  unemployment.  Often  farm  workers  do not have 
adequate  basic  training  to change  occupations,  except  to 
jobs that  do not require  any  major  skills.  The  exodus 
from  the country  to the city of young  people  and families 
in particular,  raises  problems  not only  for the individuals 
thus transplanted,  but also  for those  areas  deprived  of 
their  vitality. We recommend  that  young  people  in the country  have 
access  to the same  training  facilities  as young  people  in the 
towns. 
Enterprises,  particularly  those  connected  with 
agriculture,  should  be encouraged  to set up in rural  areas; 
this would  have  the dual  benefit  of bringing  new  life to 
these  areas  and helping  to combat  unemployment. 
The decline  in the  working  population  engaged  in 
agriculture  has a number  of causes,  not all of a social 
nature.  For instance,  changes  in crop  growing  and stock 
rearing  methods  have  played  their  part.  So too have  the 
fall in farm  incomes  and  the way  in which  the land 
problem  often  presents  itself. 
III. SOCIAL  SECURITY 
1. General  comments 
1.1. If  the gravity  of the employment  situation  had not 
called  for such  careful  consideration,  the problems  of the 
social  security  system  would  also  have  merited  detailed 
study,  especially  as the Report  on Social  Developments 
stresses  the growth  in health  expenditure. 
The Committee  would  reiterate  that  the social  security 
system,  which  protects  and  advances  the health  and 
welfare  of society,  is an achievement  which  must  be 
preserved  and  developed. 
1.2. When  it is more  difficult  to match  resources  to 
rising  needs,  all users  of social  welfare  services  should 
show  greater  solidarity  and  restraint  since  the social 
security  system  is directly  dependent  on the financial 
means  of firms,  the State  and its users. 
1.3. Any  imbalance  in the population  structure  affects 
not merely  the financing  and  the costs  of the social 
security  system;  the gravity  of the demographic  situation 
must,  however,  be emphasized,  since  the renewal  of the 
population  is no longer  certain  in almost  all the countries 
of the Community. 
Despite  the difficulties  involved  in any  analysis  of the 
causes  and  effects  of this  very  complex  problem,  the 
Committee  should  express  its concern  about  the 
demographic  situation  by contributing  to the study  of its 
economic  and  social  repercussions  (consumption, 
production,  social  needs,  etc.).  The  demographic 
10. 9. 81 Official  Journal  of the European  Communities No C 230/33 
dimension  must  be included  in the economic  and social 
analysis. 
It should  be remembered  that  an increase  in the birth-rate, 
inevitably  follows  any period  of decline  in the number  of 
births.  When  this  happens  in Europe  we shall  find  a 
declining  working  population  supporting  an increasing 
number  of young  children  and a greater  number  of elderly 
people  than  today. certain  types  of abuse  (smoking,  alcoholism,  bad eating 
habits,  driving  too  fast,  etc.)  and  certain  errors  or 
shortcomings  of  policy  (dehumanized  urban 
developments,  inadequate  sound-proofing,  bad  road 
infrastructure,  etc.)  and  greater  self-discipline  (cm the 
part of medical  staff  issuing  prescriptions,  patients  and 
their  families,  the public). 
Medical  staff,  families,  schools,  the media,  should  further 
step up their  educational  role.  They  must  therefore  be 
encouraged  to do so. 
2. Medical  insurance 
2.1. Expenditure  connected  with  sickness  insurance  is 
the fastest-growing  cost item  in the various  social  security 
systems. 
2.2. The  increase  in medical  expenditure  is largely  due 
to developments  in treatment  and  the  wider  use  of 
medical  services.  Improved  diagnosis  and treatment  has a 
positive  effect  on the  general  level  of health.  Life 
expectancy  is increased. 
Some  diseases,  which  until  recently  were  still very  serious, 
have  disappeared  or declined  in importance.  Others 
(cardio-vascular  diseases,  cancer,  etc.)  are being  treated 
effectively.  Infant  mortality  has declined  substantially. 
The elderly  remain  physically  and  intellectually 
independent. 
These  successes  must  be credited  to medical  staff, 
researchers  and the health  industry.  They  have  been  made 
possible  by the very  substantial  funds  provided  by the 
State  and the social  security  institutions. 
This  progress  represents  a social  achievement,  and we are 
collectively  responsible  for the use  of social  security 
resources.  It is not a question  of choosing  those  who  will 
from  now  on be entitled  to top-quality  care;  it is up to 
each one  of us to be reasonable  in the use of the help 
available  to us.  There  is a close  link  between 
responsibility  and  solidarity. 
2.3. Prevention  must  be further  improved,  as it has 
already  demonstrated  its usefulness,  e.g.  by steadily 
reducing  the  number  and  seriousness  of industrial 
accidents  in recent  years. 2.4. Unnecessary  admissions  to hospital  should  be 
avoided.  Accordingly,  hospitals  must  not  be used  to 
provide  for old people  or for people  on their  own  who  are 
not in need  of surgical  or medical  treatment  in a hospital. 
Other  types  of facility,  more  suitable  and less expensive  to 
run, must  be set up for them.  As already  mentioned, 
domiciliary  services  should  be expanded,  since  they  help 
to reduce  hospital  costs  by limiting  the length  of stays  in 
hospital. 
It is also  important  to ensure  a sensible  distribution  of 
equipment  and major  technical  facilities  so as to promote 
their  rational  use and  avoid  duplication,  which  means 
unnecessary  investment  and high  operating  costs. 
2.5. The  cost  of absences  due to illness  is substantial 
and on the increase. 
There  is no way  of side-stepping  this  issue,  but  any 
examination  would  have  to be preceded  by a more 
detailed  analysis  of the situation.  The  slackness  of some 
doctors,  the difficulty  of assessing  the seriousness  of some 
illnesses,  the attitude  of some  insured  persons,  but also 
working  conditions,  how  interesting  a particular  job is 
and the degree  of independence  it allows  the worker  -
these  are all factors  to be borne  in mind.  With  this 
problem,  however,  we must  beware  of generalizing  too 
hastily. 
2.6. The  role  of the family  doctor  must  be upgraded. 
He plays  a pivotal  role  in the health  services.  It is the 
general  practitioner  one  calls  upon  first.  He can  help 
prevent  illness  because  he knows  the family  environment. 
He is in a privileged  position  vis-a-vis  patients  and their 
families.  He arranges  complex  treatment  at home  and 
monitors  its effectiveness.  He is responsible  for deciding 
whether  a specialist  should  be called  in or the patient 
admitted  to hospital. 
The costs  to the community  and  to patients  themselves 
could  be cut effectively  without  in any  way  impairing 
health  care  if there  were  more  health  education  and 
information,  greater  awareness  of the dangers  and cost  of 2.7. Although  there  are numerous  contacts  between 
doctors  at Community  and international  level,  far fewer 
exchanges  are organized  between  managers  of medical 
No C 230/34 Official  Journal  of the European  Communities 10. 9. 81 
facilities  and between  those  in charge  of social  security 
bodies.  This  is to be regretted  as these  meetings  would 
facilitate  the swapping  of experience  and a comparison  of 
costs. 
2.8. Total  pharmaceutical  costs  borne  by social 
security  bodies  are all the higher  because  a relatively  large 
proportion  of medicines  is not used.  Self-medication  and 
the presentation  of some  medicines  have  an effect  on 
pharmaceutical  expenditure. 
Through  its research  departments  the pharmaceutical 
industry  makes  new  products  available  to doctors.  The 
same  can  be said  of medical  and  surgical  equipment 
manufacturers.  But  the large  number  of very  similar 
products  is not always  efficient  or medically  necessary. 
Some  Member  States  impose  controls  on the marketing  of 
medicines  and  equipment  which  are  not  essential  or 
already  available  (l). 
3. Social  security  and  social  services  for the elderly 
3.1. Social  security  and the welfare  services  are largely 
concerned  with  providing  for the elderly. 
The social  security  system  already  has  an important 
humanitarian  role  and  this  must  be intensified;  the 
important  thing  is not to put years  onto  life but to put life 
into those  years. 
3.2. Old  people  need  to feel that their  identity  is being 
respected  and that  they  are not being  cast aside  by society. 
A feeling  of uselessness  is the curse  of old age. 
3.3. Valuable  solutions  have  been  found  here  and 
there  and  these  should  be developed;  this  involves 
not only  clubs,  travel,  child-minding,  but  also 
accommodation  since  old people  must  not be cut off from 
social  and family  life. 
3.4. As  regards  financial  resources,  old people  are 
often  dependent  on the pension  they  receive.  All the 
Member  States  have  ensured  that the material  situation  of 
the elderly  has improved.  There  is a tendency  in some 
Member  States  to remove  any  legal  obligations  for 
children  to provide  for their  elderly  parents.  If these 
measures  always  served  to provide  greater  freedom  for 
the elderly  through  the State  taking  over  they  would  be 
acceptable;  but it is to be feared  that  they  may  in some 
cases  lead  to a loosening  of emotional  bonds  and  the 
neglect  of basic  filial  duties. 
(') OJ No C 185,-27.  7. 1981,  p. 39. 4. Family  allowances  and  family  policy 
4.1. The  various  social  security  systems  help  families 
financially  and  offset  to a greater  or lesser  extent  the 
personal  effort  which  they  make  in looking  after  and 
educating  their  children. 
4.2. This  is not,  however,  the only  facet  of family 
policy. 
In several  Member  States  the idea  of an 'overall  family 
policy'  has emerged.  This  consists  in regarding  the family 
as a biological,  emotional,  educational,  social  and 
economic  unit which,  as a human  and social  group,  has its 
specific  functions  and  needs.  Family  functions, 
responsibilities  and burdens  are integrated  into  economic 
and social  policy  as normal  elements  in such  wide-ranging 
areas  as taxation,  housing,  facilities,  consumption, 
health,  employment,  information,  etc. The  family  and its 
interests  are seen  as an aspect  of economic  and social  life 
instead  of an 'adjunct',  covered  by subsidiary,  specific  or 
sectoral  policies. 
4.3. The  Commission  should  instigate  more  detailed 
comparative  studies  of the  legislative  and  financial 
content  of family  policies. 
IV. THE  DISABLED 
Besides  the fact  that  1981  is the International  Year  for 
Disabled  Persons,  there  are many  other  reasons  why 
mention  should  be made  here  of policies  for  the 
disabled. 
The Committee  has delivered  an opinion  on this  very 
important  social  and  human  problem  and  refers  to the 
comments  and proposals  contained  therein. 
V. CONCLUSIONS 
In the light  of the analysis  and comments  set out above, 
the Committee  would  make  the  following 
recommendations: 
1. A  comprehensive  and coherent  Community  social 
policy  should  be formulated.  This  must  be capable  of 
dealing  with  the  problems  arising  from  the  current 
economic  and  social  situation  and  involve  the 
implementation  of  an  active  and  coordinated 
employment  policy. 
10. 9. 81 Official  Journal  of the European  Communities No C 230/35 
With  this in mind,  the Committee  calls  for the drawing  up 
of a new  social  action  programme.  It takes  the view  that 
pursuit  of an overall  social  policy  means  that  a policy 
based  on assistance  will  have  to be abandoned  in favour 
of an active  policy,  to be developed  parallel  with 
economic  policy  and  industrial  policy. 
2. The  Community's  jurisdiction  and  powers  in the 
social  sector  should  be extended  in the interests  of greater 
coordination  of the various  Community  policies  and  a 
deepening  of the process  of European  unification. 
3. The  social  dimension  should  play  a greater  role  in 
Community  policies. 
4. A  boost  should  be given  to sectors  of production 
capable  of ensuring  balanced  growth  and  improving  the 
employment  situation. 
Done  at Brussels,  2 July  1981. 5. Financial  resources  for the social  sector,  notably 
those  of the  Social  Fund,  should  be  increased 
considerably  to take  account  of both  short-term  and 
longer-term  requirements. 
6. Consultation  between  the  European 
socio-economic  interest  groups  should  be given  a fresh 
impetus  and expanded;  the various  bodies  on which  these 
interest  groups  are  represented,  in particular  the 
Economic  and  Social  Committee,  must  be closely 
involved  in framing  Community  policies  in all spheres. 
7. Particular  emphasis  should  be placed  on measures 
to assist  the categories,  sectors  and regions  hit hardest  by 
the current  economic  and  social  situation. 
The Chairman 
of the 
Economic  and  Social  Committee 
Tomas  ROSEINGRAVE