EN    EN EN 
EN    EN  COMMISSION OF THE E UROPEAN COMMUNITIES 
Brussels, 2.7.2008 
SEC(2008) 2157 
  
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 
  
SUMMARY OF THE IMPACT ASSESSMENT  
{COM(2008) 412 final} 
{SEC(2008) 2156} 
EN 2   EN IMPACT ASSESSMENT SUMMARY 
1. INTRODUCTION  
In its Communication A citizens’ agenda: Deliver ing results for Europe1, the Commission 
pointed out that the European Union needed to analyse the ra dical changes under way in our 
societies and develop sustainable responses at all levels if it wanted to tackle the challenges 
facing Europe’s economies and societies. On that basis, the Commission undertook a 
comprehensive stocktaking of  Europe’s social reality2 to ascertain the major changes under 
way in employment, family structure, lifestyle s and traditional support structures and which 
reflect the growing pressure s of demographic changes. 
Building on the results of this wide-ranging cons ultation, the crucial que stion that now needs 
answering is whether the existing approaches  provide adequate responses to the new 
challenges. The Communication on Opportunities, Access and Solidarity: Towards a new 
social vision for 21st century Europe3 sets the Commission’s initial response to the new 
challenges emerging from the results of the consultation on Europe’s social reality. The 
November Communication on the ne w social vision also indicat es that the Commission will 
prepare a renewed social agenda for mid-2008 - wh ich is the subject of this impact assessment 
- to help deliver concrete results for European citizens. 
Given the essentially political nature of this ini tiative, 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 qualitative analysis of the like ly impacts. This impact assessment also takes 
account of the comments of the Commission's Impact Assessment Board.  
2. BACKGROUND  
One of the starting points for the renewed soci al agenda is the soci al agenda for 2005-10 
adopted by the Commission in 20054. The Commission has now implemented all the actions 
planned under the social agen da 2005-10. Furthermore, 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 societal challenges at wo rk in the European Union. Building on this 
consultation, the Commission announced that it  would prepare a renewed social agenda for 
mid-2008. On the basis of approximately 150 c ontributions received by mid-March 2008, the 
Commission published a summary report5. The Commission also listened to the views of the 
                                                 
1 COM(2006) 211. 
2 "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 
3 COM(2007) 726. 
4 COM(2005) 33. 
5 See http://ec.europa.eu/citizens_agenda/social_rea lity_stocktaking/index_en.htm#, SEC(2008) 1896, or 
a short version in Annex 2 of the impact assessment report. 
EN 3   EN other European Institutions and bodies and of the relevant stakeholders, including on the 
occasion of the Social Agenda Forum organised on 5-6 May 20086. 
3. PROBLEM DEFINITION  
In the November 2007 Social Vision Comm unication, the Commi ssion provided a first 
overview of the social realitie s on the basis of the ongoing So cial Reality Stocktaking. It 
noted that European societies are undergoi ng fast-moving, profound changes in both the 
economic and social spheres. These changes are driven by powerful external forces such as 
globalisation and climate change, as well as by internal forces su ch as demographic and social 
developments. As a result: 
• Young people are not getting the best start in life : despite the fact that young people in the 
EU currently enjoy a wealth of opportuni ties, today's young generation were in a 
particularly fragile situation. In 2005, 19% of children were at risk of poverty in the EU, 
against 16% for the total EU population. Too too many young people are not able to 
develop their full potential and to successful ly enter the job market and leave school 
without a formal qualification. Youth unemployment remains a serious problem. 
• Citizens are not equipped with the skills n eeded for fulfilling careers in the knowledge 
society : although the EU is well placed to take a dvantage of globalisation, the benefits of 
globalisation are not equally shared and gl obalisation creates apprehension. The EU needs 
to support its citizens by equipping them with t ools that can help them adapt to changing 
realities and to show solidarity  with those who are affected negatively in order to ensure 
that the most vulnera ble are kept on board. 
• The EU has not risen up to the demographic and health challenge : as a result of better 
health and working conditions, a growing prop ortion of Europeans now enjoy longer and 
healtier lives, and longer and more active re tirement. In spite of migration from third 
countries, the total population of the EU will fa ll slightly and become much older. As a 
result, ensuring the sustainability of pensions is a crucial challenge for the future of social protection systems. 
• Social exclusion persists in many parts of European societies
: Life chances are not equally 
distributed in today's societies. Effective,  equal access to employ ment, lifelong learning, 
social and healthcare services varies marked ly across the EU, with a significant proportion 
of the EU population facing severe difficultie s in achieving a decent living and finding a 
job. In 2004, around 100 million Europeans earned  less than the EU median income of 
around €8 000 per year. 
• Continued discrimination on gender and non-gender grounds : Europe has made significant 
progress over the years in the field of gende r equality. Nonetheless, marked inequalities 
still exist on the labour market, in reconciling work and private life, in social protection 
and social exclusion, in health, entreprene urship, political and economic decision-making, 
and in science and technology. Furthermore, protection provided agai nst discrimination 
outside the field of employm ent on grounds of disability, ag e, sexual orientation and 
religion or belief varies across the Member States. 
                                                 
6 http://ec.europa.eu/employment_social/emp lweb/social_agenda/ec_conference_en.html 
EN 4   EN • The EU needs to better promote the social dimension of globalisation : the ILO reports that 
despite growth in the economy and jobs, many people in the world, in  particular women, 
do not have access to appropriate jobs and working conditions. An estimated 487 million 
workers — or 16.4 percent of al l workers — still do not earn enough to lift themselves and 
their families above the US$1 per person, per da y poverty line. The EU should continue to 
take decisive action to shape the international agenda so that it reflects our interests and 
values, including as part of  the "Decent Work Agenda". 
• EU policies and instruments need to be mobili sed to respond to the new social realities : 
Many policies other than employment and social  policies, such as environmental, macro-
economic, internal market, educational or resear ch policies, have a ma jor social impact. In 
response to the new social realities which ar e 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 and we ther the tools at the disposal of EU for 
supporting and complementing the activities of the Member St ates should be revisited. 
4. OBJECTIVES  
In response to the problem definition, the EU should aim to improve the well-being and 
quality of life of European citizens, while respecting the principle of subsidiarity and 
proportianality through: 
• Improving the life chances of young people; 
• Promoting new skills for new jobs, fulflling careers and better employment; 
• Fostering longer and healthier lives; 
• Combating poverty and social exclusion; 
• Taking gender equality and equal opportunities further; 
• Shaping the international agenda to promote European values; 
• Ensuring the appropriate policy mix and increa sing the effectiveness of EU instruments 
The above-mentioned objectives are fully consiste nt with, and in support of other EU policies 
and strategies, and in particular with Renewed Lisbon Strategy for Growth and Jobs , the EU 
Sustainable Development Strategy  and the Single Market . 
5. MAIN POLICY OPTIONS  
Under the EC Treaty, EU Member States bear the main responsibility for the policy changes 
needed to respond to the new so cial realities and to meet the corresponding objectives in 
section 4. The fundamental question is theref ore to know whether the EU should continue 
support and supplement the activiti es of the Member States, and if so how. The impact 
assessment considers three options: 
EN 5   EN • Option 1: 'no change in approach – no change in policy' : this mean continuing with the 
implementation of the Community acquis and considering that the Community acquis 
already adequately responds to the new social realities and that ther e would be no need for 
i) new (or review of) European  legislation, ii) revi ew of the existing instruments at EU 
level, iii) more joined-up work between EU policies. 
• Option 2: 'no change in approach – change in policy' ; As in option 1, the Commission 
would keep implementing the existing Community acquis . However, by contrast to option 
1, option 2 would mean consider ing that existing Community acquis does not adequately 
respond the emerging social realities a nd presenting a revised Social Agenda  (comprising 
legislative and non-legislative initiatives) to take account of the new social realities 
focused on the employment, social affairs a nd equal opportunities. Ne w actions in other 
policy areas (for example, education, health , information society and internal market) 
which have a social impact would also be taken, although independently from the revised 
Social Agenda.  
• Option 3: 'change in approach - change in policy' : as in options 1 and 2, the Commission 
would keep implementing the existing Community acquis . However, by contrast to option 
2, option 3 would mean considering that the cr oss-cutting nature of the problems emerging 
from the new social realities requires the m obilisation of all releva nt EU policies in a 
holistic way going beyond employment, soci al affairs and equal opportunities and 
extending to health, education, information society, internal market, macroeconomic 
policies, environment and external policies.  Option 3 would mean presenting a renewed 
Social Agenda  bringing together all re levant policies and capita lising on the so untapped 
potential between them based on three pill ars: Opportunities, Access and Solidarity. 
6. 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. 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. 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. Although the EU would be seen to address to 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 responsiveness (failure to take account of 
all citizens’ expectations).  
Under Option 3, the EU would mobilise all its relevant policies to respond to the new social 
realities. This will enable synergies between EU policies. Furthermor e, EU action would be 
highly comprehensive (it would go beyond the employment, social affairs and equal 
opportunities fields), responsive and consistent. It would not create  a new process at EU level. 
EN 6   EN Rather, it would support the existing proocesse s, including the renewed Lisbon Strategy for 
"Growth and Jobs".  
It would support Member States ' activities and resp ect the principle of subsidiarity and 
proportionality. Lastly, the analysis of impacts clearly shows that a review of existing tools 
would maximise the effectiveness and efficiency of EU action.  
In conclusion, Option 3 (‘A renewed social agen da for opportunities, acce ss and solidarity’) is 
the preferred option. 
7. 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 social reality has confirmed that 
the confidence of citizens in the European pr oject depends on credible  social policies at 
European level. EU action should remain cond itional upon proven added value, in line with 
the subsidiarity and proportionality requirements.  
But this does not preclude a more pro-active role at EU level to catalyse change and to steer, 
support and accompany necessary reforms. As part of the renewed Social Agenda, the 
Commission intends to present co ncrete 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 guidelines7. The individual impact assessments will deal with the aspects 
related to subsidiarity and va lue added in more detail.  
EU value added primarily consists in: 
• Setting policy frameworks for action;  
• Upholding Europe's values and en suring a level-playing field; 
• Sharing experiences and good practices; 
• Supporting action at local, regional and national level;  
• Raising awareness and building a strong knowledge base. 
8. MONITORING AND EVALUATION  
The renewed social agenda for 'opportunities, access and solidar ity' does not create a separate 
process. It supports and is cl osely linked with on–going processes such as the Lisbon Strategy 
for 'Growth and Jobs', the 'Sustainable Deve lopment Strategy', the Single Market, and the 
processes of open method of co ordination in the fields of social protection and social 
inclusion, of education and of youth. Sepa rate monitoring, reporting and evaluation 
mechanisms exist for all these processes. This should continue to be the case without adding 
an extra reporting mechanism for the impl ementation of the renewed social agenda. 
                                                 
7 SEC(2005) 791 
EN 7   EN The the renewed social agenda is backed up by a number of legislative and non-legislative 
initiatives, often with 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.  
The Commission will present a report on the implementation of  the Renewed Social Agenda 
in 2010. This report should include an evaluatio n of the implementation of the new horizontal 
social clause in the Lis bon Treaty. On that basis, the Commission will present a 
Communication on the review of the renewed so cial agenda for 'oppo rtunities, access and 
solidarity'.