NoC352/48 OfficialjournaloftheEuropeanCommunities 30.12.93
OpiniononSocialExclusion
(93/C352/13)
On23December1992theCommissionadoptedaCommunication entitledtowardsaEurope
ofSolidarity—IntensifyingtheFightAgainstSocialExclusion,FosteringIntegration .
TheCommission'sconsultationsonthisdocumenthaveincludedaseminarorganizedbythe
CommissionandtheDanishPresidencyinJune.
On23March1993theEconomicandSocialCommittee,actingunderthefourthparagraph
ofArticle20ofitsRulesofProcedure,decidedtodrawupanOpinion.
TheSectionforSocial,Family,EducationalandCulturalAffairs,whichwasresponsiblefor
preparingtheCommittee'sworkonthesubject,adopteditsOpinionon30September1993.
TheRapporteurwasMissMaddocks.
Atits309thPlenarySession(meetingof20October1993)theEconomicandSocialCommittee
adoptedunanimouslythefollowingOpinion.
1.Introduction —theeffectonthelabourmarketofindustrialchange
(afactorwhichparticularlyaffectspoorlyskilled
workers),
1.1.ThisOpinionanalysestheCommissionCom­
munication,condensespreviousrelevantworkunder­
takenbytheCommitteeandthencommentsonthe
Communication .—thebreakdownoffamilystructures,
—changestovaluesystems,notablyweakeningof
cohesionandtraditionalformsofsolidarity,
2.OutlineoftheCommunication
—thetrendtowardssocialfragmentation ,withthe
consequence ,fortraditionalrepresentative insti­
tutions,ofreducedparticipation ,2.1.Thefirstsectionofthis'Communication 'gives
ananalysisofthechallengeposedbysocialexclusion.
ThesecondsectioncoversananalysisofCommunity
policiesdevelopedtotacklethischallenge.Thirdly,it
providesanoverviewofthedirectionoffutureaction.—changesinmigration.
2.2.2.2.Socialexclusionisdefinedasdynamicin
thatitisadevelopingproblem.Theproblemisparticu­
larlyacuteinthepresentperiodofrecessionanduncer­
tainty.ThisphenomenonaffectsallMemberStates,
thoughnationalsituationsvary,andthestresstendsto
belaidondifferentfeaturesindifferentcountriesand
atdifferenttimes.Atpresent,theCommunication indi­
catesthevisibilityofsocialexclusion,theaccelerating
paceofitsdevelopment ,andtheextremeformsit
isassuminghaveincreasedawareness .Trendswhich
indicateariskoffurtherexacerbation include:2.2.Thechallengeposedbysocialexclusion
2.2.1.Newformsofpovertyhavedevelopedinthe
past15years.Thegrowthinlong-termunemployment ,
urbanunrest,theresurgentproblemofhomelessness
andthecampaignsledbynon-governmental organiza­
tionshaveallservedtogeneratedebateonthe'new
poverty'.
2.2.2.Povertyisacomplexphenomenon ,whichcan­
notbedefinedsolelyintermsoflowincomelevels.
Consequently ,theEuropeanCommunityandseveralof
itsMemberStatesinsteademphasize'socialexclusion'.
Socialexclusion,theCommunication informsus,is
'structural','dynamic'and'multi-dimensional '.
2.2.2.1.Socialexclusionisdefinedasstructuralin
thatitistheproductofimportantstructuralchanges,
including:
—persistentlong-termunemployment ,—employmenttrendsholdoutnohopeofashort­
termimprovement .Evenwhen,inthemid-eighties,
therewasanupturninemployment ,unemployment ,
and,especially,long-termunemployment ,remained
high.Sincethen,theemploymentsituationhas
deterioratedandmaydeterioratefurther,
—EuropeanMonetaryUnionpressesMemberStates
toreducetheirbudgetdeficits,creatinganewcon­
straintonpublicspending,

30.12.93 OfficialJournaloftheEuropeanCommunities NoC352/49
economicpoliciesandtheconvergenceofsocialprotec­
tionpolicies.Socialprotectionpoliciesandtheirobjec­
tivesaretobebroughtintoalignment,tofostercooper­
ationandcountersocialdumping.Atthesametime,
theconvergenceofeconomicpolicieswill,bypromoting
prosperitythroughoutEurope,counterpovertyand
exclusion.—changestothesocialandeconomicstructurein
ruralareas,
—thedevelopmentofrun-downurbandistricts,with
concentrations ofexcludedpopulations,
—generalchangesinlifestylesandtrendsinfamily
structureseemunlikelytochange.
2.2.2.3.Socialexclusionisdefinedasmulti-dimen­
sionalbecausetheinadequaciesandweaknessesinser­
vicesandpolicieswhichhaveallowedittodevelop
existinmorethanonepolicyarea.Socialexclusion
affectsindividuals,groupsofpeopleandgeographical
areas.Socialexclusioncanbeseen,notjustinlevelsof
income,butalsomatterssuchashealth,education,
accesstoservices,housinganddebt.Phenomenawhich
resultfromsocialexclusionthereforeinclude;
—theresurgenceofhomelessness ,
—urbancrises,
—ethnictension,
—risinglong-termunemployment ,
—persistenthighlevelsofpoverty.2.3.4.CooperativeactionwiththeMemberStates
bytheCommunityagainstexclusionhasbeenexpressed
throughtheStructuralPolicies,TheCommission's
document'FromtheSingleActtoMaastrichtand
Beyond:Themeanstomatchourambitions'[COM(92)
2000final,11February1992]stressedthattheinte­
grationofpeopleexcludedfromthelabourmarket
wasoneofitsprincipalconcernstobeaddressedby
structuralpoliciesusingtheStructuralFunds.This
decisionhasnowbeenendorsedbytheCouncil.
2.3.5.SupportschemeshavebeensetupforStructur­
alFundpilotprojectstoovercometheseproblems,the
mostimportantofwhichareHorizonandNOW.The
Horizonprogrammeisspecificallytargetedondisad­
vantagedpopulations,NOWonwomeninavulnerable
position,vis-a-visthelabourmarket.Thesepro­
grammescombinetrainingandjobpromotionschemes
withsupportservicesforindividualsandgroupsof
people.
2.3.6.Generalandstructuralpoliciesagainst
exclusionarenecessaryconditionsfortheelimination
ofexclusion,butarenotsufficient.Thisprinciplewas
recognizedon29September1989,bytheSocialAffairs
Councilresolutiononcombatingsocialexclusion(OJ
C277,31October1989),callingforspecificpoliciesin
alltheareasrelevanttosocialexclusion :
—education,
—training,
—employment ,
—health,
—housing,
—accesstoservices.2.3.TheEuropeanCommunity'sBattleAgainstSocial
Exclusion
2.3.1.TheCouncilofMinistershasalready
expressedconcernaboutsocialexclusion.TheCom­
municationsuggeststworeasonswhytheCouncil's
concernisjustified:
—EuropeanUnioncannotbedevelopedwithout
internalcohesion,
—supportforEuropeanintegrationdependsonthe
developmentofthe'socialdimension'.
2.3.2.TheCommunication arguesthattheCom­
munitycan'addvalue'toMemberStates'initiatives
by:
—identifyingandpromotinggoodpractice,know­
ledgeandexpertise,includingcreatingandsupport­
ingnetworks,
—analysingtheimpactofCommunitypolicies,with
aviewtodevelopingthemtopromotecoherent
action,
—participatingintheresolutionofproblemswhich,
bytheirnature,arebeyondnationalboundaries,
—affirmingcommonvalues,especiallythoseof
respectforhumandignity.
2.3.3.TheCouncilRecommendation of27July1992
ontheconvergenceofsocialprotectionobjectivesand
policiesestablishesalinkbetweentheconvergenceof2.3.7.Thisprinciplewasfurtherrecognizedon24
June1992,whentheCouncilpassedaRecommendation
onaGuaranteeofResourcesandBenefitsintheSocial
ProtectionSystems,whichstressedtheneedtocombine
financialsupportwiththemeasuresnecessaryforecon­
omicandsocialintegration .

NoC352/50 OfficialjournaloftheEuropeanCommunities 30.12,93
—actionaimedspecificallyatpromotingemployment
andintegrationindeprivedurbanenvironments .2.3,8.Theprincipleofspecificactionagainst
exclusionismostnotablyembodiedinthePoverty3
Programme .ThefirstEuropeanProgrammetocombat
povertywasestablishedinthe1970s.Itwasdesigned
tostimulatetheinitiativesandpoliciesconductedinthe
MemberStatesbypromotinginnovation,thetransferof
know-howandpublicdebate.Poverty3(whichwas
inauguratedin1989,andwillrununtilJune1994)is
moreambitiousthanitsforerunnersinthatitlaysstress
onpartnership,theinvolvementofthoseconcerned,
andamulti-dimensional approachtosocialexclusion,
andfocusesresources(ECU55million)on40pilot
projects.2.4.3.TheCommunication callsformoreinfor­
mationaboutsocialexclusion.Thiscould,itissuggest­
ed,beimportantindevelopingpolicyguidelines.
Improvedstatisticsontheproblemitself,andonthe
effectivenessofpoliciesandactionswillbeimportant.
TherewillbeacentralrolefortheObservatoryof
policiestocombatsocialexclusion,setupbytheCom­
missionin1989;andfortheCommissionitself,asit
monitorsthefollow-uptothetwoRecommendations
onConvergenceandCommonCriteria.
2.4.MeasuresproposedintheCommunication
2.4.4.TheCommunication suggeststhattheinte­
grated,multi-dimensional approachproposedcouldbe
givenafirmfootingbyestablishingasetofrights,
recognizedbytheCommunity,whichwouldbe
especiallyvaluableforexcludedpeople.TheCom­
munity'sCharterofFundamentalRightsofWorkersis
anexampleofthistypeofdeclaration,butisitself
unsuitableinthiscontextbecauseitonlyindirectly
affectstherightsofpeoplewhohavebeenexcluded
fromthelabourmarket.Therightsthustobegiven
solemn—butnotbinding—recognitionshouldbe
basedupontheprincipleofrespectforhumandignity.
2.4.5.Finally,theCommunication indicateshowthe
dialogueofthoseinvolvedincombatingexclusion
mightbestbestructured.Itisarguedthatsocial
exclusioncanonlybeeliminatedwiththepositivecon­
tributionofallthesocialactors,including,especially,
thepopulationsactuallyconcerned.Thepublicauthori­
ties,thesocialpartners,thenon-governmental organiz­
ationsandtheCommissionmustallcooperate,both
onparticularprojectsandinpermanentforums—such
astheEuropeanAnti-PovertyNetwork.2.4.1.Unfortunately ,themeasuresthuspromoted,
suchastheemployment-promotion measuressupported
bytheEuropeanSocialFund,havenotalwaysbeenas
accessibletothemostdisadvantaged groupsofpeople
asmighthavebeenhoped.Theyhaveseldomincluded
the'follow-up'measuressuchpeopleneed—suchas
literacycampaigns,personalizedsupport,assistancein
assessingrights,housingandhealthservices.Thisis
notsurprising,astheactivitiesoftheFundsdonot
directlyandspecificallyconcernpeoplefacingsevere
poverty.
2.4.1,1.TheCommunication proposesthatthe
StructuralPoliciesshouldcontinuetodevelop:
—withtheaimofpreventing (ratherthanremedying)
unemployment andsocialexclusion,
—anticipatingindustrialchange,
—furtherpromotingretrainingandintegration
measures,
—promotingvocationaltrainingforexcludedpopu­
lations.
'Theaimwouldbe,withintheframeworkoffuture
developmentsconcerningthestructuralpolicies,topro­
moteschemeswhichrespondtothemultidimensional
natureofsocialexclusionanditsconcentration in
deprivedareas,andwhichinvolveapartnership-based
approachmobilisingtherelevantplayers'.(Op.Cit,
para.54)
2.4.2.TheCommunication suggeststhatafourth
povertyprogrammecouldinclude:
—largerscaleschemes,
—innovativeprojectscurrentlyrunbyprivatepart­
ners,
—measuresotherthanlocalprojectsinthestrictsense,
suchasresearchorthestimulationofdebate,2.4.6.TheCommunication reportsthattheCom­
missionintendstodevelopforsocialexclusionthemes
a'specificformofsocialconsultation ,whichcouldalso
makeausefulcontribution todiscussionsbetweenthe
twosidesofindustryatCommunitylevel'(Op.cit.
para.71).
3.TheJuneSeminarinCopenhagen
3.1.Asmentionedinparagraph1.1.on4and5June,
aseminaronSocialExclusionwasorganizedbythe
CommissionandtheDanishPresidencyinCopenhagen .
ForthepurposesofthisOpinion,therewerethree
importantdevelopmentsatthatevent:
—abroaddiscussionaboutasolemndeclaration,

30.12.93 OfficialJournaloftheEuropeanCommunities NoC352/51
—PresidentDelorsannouncedthathewillseekfrom
theCounciladoublingofthebudgetforthenew
povertyprogramme ,
—PresidentDelorsannouncedhisintentionofintrod­
ucingassoonaspossiblethenewformofsocial
consultation forsocialexclusionthemes;social
actorstobeconsultedincludetheEuropeanAnti­
PovertyNetwork,Coface,theETUCandUnice.4.2.1.TheOpinionnotedaCouncilResolutionof
21December1992,whichacknowledged that'the
unemployedusuallyhavelowerstandardsoflivingand
income',andthatunemployment is'aparticularlyseri­
ousmatterforcertainregionsandareasoftheCom­
munity'.('Employment inEurope',paragraph1.2.4)
TheOpinionalsonotedforecaststhatunemployment
wouldriseinthemediumterm,andthathighlevelsof
unemployment wouldpersistinthelongterm(Ibid,
paragraph1.3.1).Unemployment wouldbehigher
amongwomenandyoungpeople,wouldhitthosewith
skillsandqualifications ,aswellasthosewithout,and
thelong-termunemployedwouldformarisingpro­
portionofthetotalnumber(paragraph2.1.2).
4.2.2.InitsOpinion,theCommitteenotedthat
unemployment wasinteractingwithotherchangesto
theEuropeanlabourmarket.Inparticular,attention
wasdrawntorisingfemaleparticipationrates,increas­
ingpart-timeservicework,fewerfull-timejobs,
decreasingemploymentinfarmingandtheimpactof
migration.
4.2.3.TheCommitteeconsideredthatagenuine
cooperativestrategyforgrowthandjobcreationwas
neededimmediately .TheEuropeanInvestmentFund,
andthenewlendingfacilityforprojectslinkedtotrans­
EuropeannetworksagreedattheEdinburghsummit,
were,theCommitteearguedintheOpinion,minimal
andwouldfallfarshortofrequirements .TheCom­
mitteecalledfortheamountsdevotedtotheseinitiatives
toberevisedupwardssubstantiallyandforpreparatory
workontheseprojectstobespeededuptobring
forwardtheirimplementation .4.RelevantpreviousworkbytheESC
4.1.In1988theEconomicandSocialCommittee
drewupanInformationReporton'Poverty'(CES256/
88fin-—Rapporteur :MrBurnel),inwhichexisting
formsofseverepovertywereexamined.TheReport
defined'severepoverty'intermsverysimilartothose
usedindiscussionsof'socialexclusion'.
'Incommonparlancethepoorarepeoplewithout
adequatefinancialresources.Butifwetakeintocon­
siderationallthecomplexrules,renovationsandstruc­
turesofoursocieties,alltheindifferenceandbrutality
ofhumanrelations,thenwecanfairlyreachthecon­
clusionthatpeopleunabletoasserttheirrightsbecause
ofalackoftrainingorbecausetheyareunabletoform
relationships ,willalsobecasualtiesofseverepoverty.'
4.1.1.Thecausesofthis'severepoverty'were
definedas:
—unemployment ,
—homelessnessortheinabilitytoescapefromsub­
standardhousingunfitforhumanbeings,
—lackoftraining,
—theinabilitytocommunicate ,
—ill-adaptedandinadequatesocialprotection,
—heavydebts,
—thecollapseoftraditionalfamilypatterns,
—ill-conceivedandinadequatepoliciesfortheelderly.
4.1.2.ThesimilaritieswiththeCommission'sCom­
municationarenoticeable,particularlythedefinition
ofsocialexclusionasastructural,dynamicandmulti­
dimensionalphenomenon .
4.2.InApril1993,theESCagreedanOpinionon
'EmploymentinEurope'(Rapporteur :MrVascoCal).
ThisOpinionwasagreedinthelightofadeclaration
bythesocialpartnersof3July1992,emphasizingthe
needforacomprehensive growthstrategyformore
employmentandagainstabackgroundofrisingunem­
ploymentandadeterioratingsocialandeconomicsitu­
ation.4.2.4.InitsOpinion,allpartiesneededtotakecom­
prehensiveactionsothateducationandvocational
trainingsystemsatallstagesgivedirectionto,andback
up,economicgrowthandtechnologicalprogress,taking
accountofworkers'ownindividualinterests.Equally,
moreworkerconsultationandparticipationwascon­
sideredtobevitaltobothgetthemostoutofthe
introductionofnewtechnologies ,productionprocess
innovationsandimprovements inworkingmethodsand
toadjusttrainingsystemssothattheymatchrequire­
ments(paragraphs3.1.2—3.1.2.5).
5.Comments
5.1.TheEconomicandSocialCommitteeregards
socialexclusionasaphenomenon ofgrave

NoC352/52 OfficialJournaloftheEuropeanCommunities 30.12.93
significance .IntheCommittee'sview,socialexclusion
threatensthesocialandeconomicprogressofEurope,
threatensEuropeanandnationalunityand,ultimately,
couldthreatendemocracyitself.Thissituationhas
deteriorateddespiteasignificantexpansioninsocial
securityandbenefitsystemswhichbearswitnesstoa
realconcernforthewelfareofothers.Inthepastthe
Committeehasagreeddocumentsforeshadowing the
Commission'sdescriptionofsocialexclusionasstruc­
tural,dynamicandmulti-dimensional .5.2.1.IntheCommittee'sview,educationand
vocationaltraining—especiallyofwomen-arecentral
tothefightagainstunemployment ,tothemaintenance
offamilyandcommunityrelationshipsandtherefore
tothefightagainstsocialexclusion.TheCommittee
callsontheCommissionandotherimportantsocial
actors,especiallythesocialpartners,togiveahigher
prioritytoeducationandtrainingandtoworktogether
toproduceaEuropeantrainingculturewhichisrelevant
tochangesintechnology,managementandsociety.
5.2.2.However,theCommitteeisalsooftheopinion
that,bythemselves,educationandtrainingarenot
enoughtoconstructanadequatepolicyagainstunem­
ployment.Generalandspecificpoliciesaimedatjob­
creationwillalsobenecessary.TheCommitteewel­
comestheCommission'sinitiativeinbringingnational
governmentstogethertodiscussimaginativeandinno­
vativeemploymentprogrammesandurgesittocon­
tinueso.5.1.1.TheCommitteethereforewelcomestheCom­
munication .TheCommitteeconsidersthatitprovides
avaluableandcoherentintellectualfoundationfor
Communityendeavoursinthefieldofsocialprotection
andthatiteffectivelyarguesthecaseforincorporating
thefightagainstsocialexclusionintotheCommunity's
generalpolicies,whilstrecognizingthelimitationsto
theroletheECcanplayinsolvingit.Theharmoniza­
tionofCommunitypolicyandthepoliciesoftheMem­
berStatesisveryimportant .
5.2.2.1.TheCommitteeisoftheopinionthatunem­
ployedpeopleshouldretainadequatepurchasingpow­
er,alsoinordernottodepressmarketdemandfurther.
Inparticular,unemployedpeopleshouldbeallowedto
engageinvoluntaryandcharitableworkwithoutlosing
theirentitlementtobenefit.Furthermore ,authoritiesat
everylevelshouldacceptthedutyofattemptingto
changenegativeattitudestothoseunabletoobtain
employmentandthusraisetheself-respectoftheunem­
ployed.5.1.2.TheCommitteeconsidersthatitisimportant
tostatethattheCommunity'spoliciesrelatingtosocial
exclusioncannotsolveallmajorproblems.However,
theCommitteeconsidersthatmanygroupsofpeople
facingsocialandlabourmarketexclusionwouldbenefit
frompoliciesbasedontheanalysispresentedinthe
Communication .Theseincludelargecategories,cover­
ingmillionsofpeople—suchaswomen,childrenand
disabledpeople.Equally,muchsmallergroupsfacing
specificproblemscouldhopetobenefit—unemployed
workerswithskillsandqualificationswhofindthem­
selvesunabletogetwork,drugaddicts,peopleleaving
jailandolderretiredpeople.Theselistsarefarfrom
exhaustivebuttheygivesomeideaofthepotential
scopeandbenefitsofapolicytocombatsocial
exclusion.5.3.TheCommitteewelcomestherecognitionin
theCommunication oftheimportanceofthemoral
dimensionofsocialexclusion.TheCommitteecon­
sidersthatthedeclineinsupportforvaluessuchas
solidarityandfamilylifeisanimportantphenomenon .
Thischangehasincreasedtheincidenceandintensified
theexperienceofexclusionforwomenandchildren
andotherpeopleaffectedbychangesinfamilystruc­
ture.Thedeclineofsolidarityhasmeantthatpeople
excludedfromthelabourmarket,orwithonlyatenu­
ousconnectiontoit,aremorelikelytofaceexclusion
andthattheexperienceofexclusionisworse.5.2.TheEconomicandSocialCommitteerecognizes
thatsocialexclusiongoesfurtherthanmattersrelating
tothelabourmarketandthatmany—orevenmost—
sociallyexcludedpeopleareoutsidethelabourmarket.
However,unemployment is,intheCommittee'sview,
themostimportantofthedynamicmechanismsproduc­
ingtoday'ssocialexclusion.TheCommunityshould
recognizethatmodernunemployment is,initself,a
complicatedphenomenonandisrelatedtootherlabour
marketchangessuchastheincreaseinpart-time
employment .Inparticular,Communitypoliciesshould
addressspecificpoliciestoimportantaspectsofunem­
ployment—suchasruralunemployment andunder­
employment—andnotrelysolelyonmoregeneralized
policies.5.4.TheEconomicandSocialCommitteewelcomes
theproposalsintheCommunication forastructured
dialoguebetweenthevariousactorsinendeavoursto
combatsocialexclusion,includingtheCommission ,
theMemberStates,Regional,MunicipalandLocal
authorities,thesocialpartners,non-governmental
organizations andexcludedpeoplesthemselves.The
Committeebelievesthatalltheseactorshavearoleto
playinthefightagainstsocialexclusion,bearingin

30.12.93 OfficialJournaloftheEuropeanCommunities NoC352/53
mindthatdifferentactorswillbeofgreaterorlesser
importancewithregardtodifferentpoliciesfordifferent
groups.
5.4.1.TheCommitteealsowelcomesthespecific
'socialconsultation'onpoliciesandprogrammes
regardingsocialexclusion,whichcouldmakeauseful
contributiontothedevelopmentandimplementation
ofacoherentCommunitypolicy.
5.4.2.TheCommitteewishes,however,toemphas­
izethatnewadditionalformsofconsultationanddia­
logueshouldnotweakenexistingforms.Furthermore ,
theCommitteeconsidersthatitsrolewouldjustify
itsinclusionamongtheorganizations automatically
consultedbytheCommission .
5.4.3.TheCommitteenotestheobservations made
attheendoftheCommunication (paragraph74)regard­
ingthelimitationsoftheCommunityCharterofthe
Fundamental SocialRightsofWorkers.Bearingthis
inmind,theCommitteerecommendsthatthesocial
partners,shouldtheywishfullytoparticipateinthe
Commission'ssocialconsultation ,shouldnotexclus­
ivelylimittheirconcernstotheworkplaceandthat
theyshouldadoptsocialresponsibilities inthewider
world,withintheirrespectivespheres.—blackandethnicminoritypeople,
—religiousminorities,
—disabledpeople,
—youngpeople,
—peoplewithmentalillnessesanddisabilities.
Thislistisnotexhaustive .
5.6.1.IntheCommittee'sopinion,theCommunity
hasaroleinopposingintolerance,prejudice,segre­
gationandnegativediscrimination andsuchanendeav­
ourshouldbecentraltoactionagainstsocialexclusion.
,AlltheCommunity'sactionsinfavourofmembersof
thesegroupsshouldincludeacommitmentopposing
negativediscrimination .
5.7.IntheEconomicandSocialCommittee'sview,
acommitmenttocombatsocialexclusionhasimpli­
cationsforthefuturedirectionoftheEuropeanUnion:
—Europeansocialexclusion,ifitisadequatelytobe
addressed,requireseffortsatnationallevelandis
unlikelytobedefeatedwithouttheconvergenceof
suchsocialprotectionpolicies;
—theCommitteewouldrepeatitsviewthatthere
shouldbebothsocialandeconomicconvergence
criteria,withtheaimofpromotingsolidarity
measures;
—theconvergenceofsocialprotectionpolicieswillbe
unlikelywithoutsubstantialfurtherprogress
towardsEuropeanunity,
—measurestakenbyMemberStatesincompliance
withEconomicandMonetaryUnion,asagreedin
theTreatyonEuropeanUnion,mayhavesevere
implicationsforsocialprotectionpolicyandhence
forthefightagainstsocialexclusion,
—fromasocialexclusionperspective,reductionin
socialprotectionexpenditurebyMemberStatesto
meettheEMUconvergencecriteria,areofparticular
concern,
—theCommunityshouldattendtotheimpactofsuch
measuresonsocialexclusion,
—itwouldbeusefulifallCommunitypolicieswere
analyzedfortheirlikelyimpactonpovertyand
socialexclusionbeforebeingagreeduponandthen
subsequentlyevaluated.
5.8.TheCommitteewasalsoconcernedtorecord
fourspecificpolicieswhichwouldbeofuse:
—theCommitteeagreeswiththeCommission'sstate­
mentintheCommunication thatbetterquality,
moreextensivestatisticsonsocialexclusionare
needed,.5.5.TheEconomicandSocialCommitteeconcurs
withtheassertionintheCommunication thatsocial
exclusionisaproblemofconsiderabledimension .
Unfortunately ,up-to-datestatisticsonsocialexclusion
arenotreadilyavailable,but,inthelightofsubstantial
increasesinunemployment ,povertyandhomelessness ,
theCommitteeconsidersthattheproblemhasalmost
certainlyworsenedinrecentyears.TheCommittee
accordinglywelcomesPresidentDelors'commitmentto
seekadoublingofthebudgetofthePovertyPro­
gramme.TheCommitteestronglysupportsthecontinu­
ationandexpansionofthisandotherrelevantspecific
programmes—suchasNOWandHorizon.
5.6.TheEconomicandSocialCommitteeconsiders
itunfortunatethat,giventherecognitionofsocial
exclusionasastructuralandmulti-dimensional
phenomenon ,theproblemofunjustifiablediscrimi­
nationagainstsignificantexcludedgroupsisnotaddres­
sed.Negativediscrimination ,andalliedphenomena,
suchasprejudice,intolerance,extremismandsegre­
gation,arestructurescommontotheexclusionfaced
inmanydimensionsofsocialandeconomiclife,by
manysuchgroups.Toalargerorlesserextentthese
problemsarefacedbynearlyallthesignificantgroups
ofpeoplethreatenedwithgreaterriskofsocial
exclusion,including:
—unemployedpeople,
—women,

NoC352/54 OfficialJournaloftheEuropeanCommunities 30.12.93
—additionally,thenatureofsocialexclusionrequires
thatnewcategoriesofstatisticsarecollected,
—excludedpeopleareoftenisolatedandfeelaban­
doned.Apolicyof'accompanying 'peopleinthese
circumstanceswouldbeveryhelpful,
—toomanysociallyexcludedpeopleareunawareof
theirrights;betterpublicityandinformationare
necessary .
5.9.Inthelightoftheprecedingcomments,the
EconomicandSocialCommitteeisabletorecommend
someoftherightswhichshouldbeincludedinaCharter
(ratherthanasimplesolemndeclaration):
—-publicpoliciesshouldcontinuetobedevisedand
implementedinaccordancewiththeprincipleof
solidarity,
—therighttoasecurefamilylifeshouldberespected,
—everyoneshouldhaveaccesstobeconsultedon
publicdecisionswhichaffectthem,—authorities,attheleveloftheCommunity,the
nation,theregionandthemunicipalityshould
adoptandimplementpoliciesdesignedtocounter
socialexclusion,
—authorities,attheleveloftheCommunity ,the
nation,theregionandthemunicipalityshould
adoptandimplementpoliciesdesignedtocounter
unemployment ,
—no-oneshouldfacenegativediscrimination in
employmentortheenjoymentofservicesorfacilities
onthegroundsofsex,race,nationality,age,dis­
ability,politicalorreligiousviews,
—everyoneshouldhaveaccesstoeducationand
vocationaltrainingdesignedtopromotetheirinte­
grationintothelabourmarket.
5.9.1.IntheCommittee'sview,theserightsarenot
justimportantforsociallyexcludedpeople.Therefore,
suchaChartershouldnotbeaCharterforpoorpeople
orforthesociallyexcluded,itshouldrecognizerights
grantedtoallcitizensoftheEuropeanUnion.
DoneatBrussels,20October1993.
TheChairman
oftheEconomicandSocialCommittee
SusanneTIEMANN